Van Wyck Expressway (I-678) Capacity and Access ... · Van Wyck Expressway (I-678) Capacity and...

August 25, 2017

Van Wyck Expressway (I-678) Capacity and

Access Improvements to JFK Airport

NYSDOT PIN X735.82

COORDINATION PLAN

August 25, 2017

Van Wyck Expressway (I-678) Capacity and Access Improvements to JFK Airport COORDINATION PLAN

P.I.N. X735.82 August 2017

Page i

Table of Contents

Table of Contents .......................................................................................................... i

Section 1. Introduction .............................................................................................. 1

1.1 Purpose of Coordination Plan ....................................................................... 1

1.2 Project Overview .......................................................................................... 1

1.3 Key Resource Concerns ................................................................................ 2

Section 2: Cooperating/Participating Agencies ......................................................... 3

2.1 List of Agencies, Roles, and Responsibilities ................................................ 3

2.2 Agency Contact Information......................................................................... 5

Section 3. Schedule and Methodologies ...................................................................... 6

3.1 Project Schedule ........................................................................................... 6

3.2 Methodology for the Environmental Analyses ............................................. 7

Section 4. Public Involvement Activities .................................................................. 10

4.1 Public Scoping Meeting .............................................................................. 10

4.2 Public Hearing ............................................................................................. 10

4.3 Other Meetings........................................................................................... 10

4.4 Limited English Proficiency Outreach ......................................................... 10

4.5 Environmental Justice Outreach ................................................................ 10

4.6 Americans with Disabilities Act Outreach .................................................. 11

Section 5. Revision History ...................................................................................... 12

Tables:

Table 1: List of Invited Cooperating and Participating Agencies - Page 4

Table 2: Agency Contact Information - Page 5

Table 3: Overall Project Schedule - Page 6

Table 4: Summary of Methodologies - Page 7

Table 5: Revision History - Page 12


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Section 1. Introduction

1.1 Purpose of Coordination Plan

This Coordination Plan for the Van Wyck Expressway Capacity and Access Improvements to JFK Airport

(the Project) located in Queens, New York conforms to the requirements of the National Environmental

Policy Act (NEPA) and specifically complies with the current federal surface transportation law, Fixing

America’s Surface Transportation Act (FAST Act).

The 2005 Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-

LU) increased opportunities for the public and federal, state, and local agencies to have active and early

involvement in the NEPA process and to provide input on a project’s purpose and need, environmental

study methodology, and alternatives under consideration. Section 6002 of SAFETEA-LU entitled,

“Efficient Environmental Reviews for Project Decision-making,” required the development of a

Coordination Plan for all highway and transit projects for which an Environmental Impact Statement

(EIS) is being prepared under NEPA. These increased opportunities for involvement are included in the

FAST Act, which also includes a collaborative and integrated approach to transportation decision-making

that considers benefits and impacts during the planning process. Accordingly, the Federal Lead Agency

(the Federal Highway Administration (FHWA)) and the Joint Lead Agency (the New York State

Department of Transportation (NYSDOT)) prepared this Coordination Plan to describe the process and

communication methods for disseminating information about the Project, as well as to solicit and

consider input from the public and other agencies.

The Coordination Plan will be in effect throughout the environmental review process, beginning with

scoping and ending with the Record of Decision. The plan is a flexible “living” document that can be

amended as needed during the project environmental review process. Changes to the Coordination Plan

are documented in the “Revision History” section on the last page of the document.

1.2 Project Overview

The Van Wyck Expressway (I-678) (VWE) is the major transportation corridor providing access to and

from John F. Kennedy (JFK) International Airport. JFK Airport is a major international gateway to the

United States that handles 58.9 million passengers with over 400,000 aircraft operations annually.

According to the “Recommendations for a 21st Century Airport for The State of New York,” a report

prepared by the Airport Advisory Panel on January 2017, the number of passengers at JFK Airport is

expected to grow by nearly one-third to a total of over 75 million passengers by 2030. The VWE also

serves as the major route for commercial truck traffic to get to and from the airport, with trucks

accounting for eight percent of morning peak volume and five percent of evening peak volume on I-678.

The needs for the Project are to provide increased capacity on the VWE to and from JFK Airport;

improve traffic operations and geometry of ramps within the identified project limits; and address

structural deficiencies on the bridges within the project limits. The purpose of the Project is to provide

increased capacity on the Van Wyck Expressway between the Kew Gardens Interchange and JFK Airport

to improve vehicular access to and from the airport. In addition, the Project will address operational,

geometric, and structural deficiencies on the Van Wyck Expressway between the Kew Gardens

Interchange and JFK Airport.


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The following objectives have been established to further refine the project purpose:

Provide an additional vehicular travel lane on the Van Wyck Expressway in each

direction between JFK Airport and the Kew Gardens Interchange;

Address geometric and operational deficiencies of the Van Wyck Expressway

exit/entrance ramps within the identified project limits; and

Address structural deficiencies on the bridges on or crossing over the Van Wyck

Expressway within the project limits.

A Notice of Intent (NOI) to prepare an EIS for the Project was published in the Federal Register on June

1, 2017. A reasonable range of alternatives is currently being developed and will be refined during the

NEPA scoping process in consideration of agency and public comments received.

1.3 Key Resource Concerns

The EIS for the Project will include an evaluation of the Project’s potential social, economic, and

environmental effects. The key topics of concern include:

Traffic congestion

Transit (commuter train and subway) operations

Right-of-way (property) needs

Environmental concerns, such as air quality, traffic noise, parkland, and cultural and

historic resources

Social concerns, including environmental justice

Economic considerations, including the potential for effects to local and/or regional

businesses

Construction-related effects (traffic, air quality, noise)


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Section 2: Cooperating/Participating Agencies

2.1 List of Agencies, Roles, and Responsibilities

The appropriate agencies have been identified and invited to serve as Cooperating and/or Participating

Agencies for the Project. Cooperating and Participating Agencies are responsible for identifying, as early

as practicable, any issues of concern regarding the Project’s potential environmental or socioeconomic

impacts that could substantially delay or prevent an agency from granting a permit or other approval.

According to the Council on Environmental Quality (CEQ) regulations (40 CFR § 1508.5), “Cooperating

Agency” means any federal agency, other than a lead agency, that has jurisdiction by law or special

expertise with respect to any environmental impact involved in a proposed project or project

alternative. A state or local agency of similar qualifications or, when the effects are on lands of tribal

interest, a federally-recognized Native American tribe may, by agreement with the lead agencies, also

become a Cooperating Agency. CEQ also states (40 CFR § 1501.6) that an agency may request the lead

agency to designate it a Cooperating Agency.

“Participating Agencies” are those with an interest in the project. The standard for Participating Agency

status is more encompassing than the standard for Cooperating Agency status. Therefore, Cooperating

Agencies are, by definition, Participating Agencies, but not all Participating Agencies are Cooperating

Agencies. The NYSDOT and FHWA have considered the distinctions noted below in deciding whether to

invite an agency to serve as a Cooperating/Participating Agency or as a Participating Agency.

The roles and responsibilities of Cooperating and Participating Agencies are similar, but Cooperating

Agencies have a higher degree of authority, responsibility, and involvement in the environmental review

process. A Cooperating Agency with jurisdiction may adopt, without recirculating, the EIS of a lead

agency when, after an independent review of the statement, the Cooperating Agency concludes that its

comments and suggestions have been satisfied. This provision is particularly important to permitting

agencies that, as Cooperating Agencies, may adopt USDOT environmental documents.

Cooperating Agencies are responsible for providing input on:

Purpose and need

Range of alternatives

Methodologies

Identification of issues that could substantially delay or prevent granting of

permit/approval

Mitigation

Cooperating Agencies also share the responsibilities of Participating Agencies. The role of Participating

Agencies is to:

Provide comments, responses, studies, or methodologies on those areas within the

special expertise or jurisdiction of the agency

Use the process to address any environmental issues of concern to the agency

Table 1 lists the agencies that have been invited to serve as Cooperating and Participating Agencies for

the Project along with the reason for their requested involvement and particular responsibilities. The

Cooperating and Participating Agencies will be consulted throughout the EIS process.


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Table 1: List of Invited Cooperating and Participating Agencies

Agency Name Involvement

Cooperating Agencies

New York State Department of Environmental Conservation (NYSDEC)

New York State environmental permits

New York State Office of Parks, Recreation and Historic Preservation – State Historic Preservation Office (SHPO)

Section 106, National Historic Preservation Act; Section 4(f), U.S.

Department of Transportation Act

New York State Department of State (NYSDOS) Coastal Area Consistency

U.S. Environmental Protection Agency (USEPA) Section 309 Clean Air Act; Sole Source Aquifer provision of Safe Drinking

Water Act

Participating Agencies

Long Island Rail Road (LIRR) Consultation regarding railroad bridges in project area

Port Authority of New York and New Jersey Consultation regarding JFK Airport and Airtrain

New York City Department of Transportation (NYCDOT)

Consultation related to local roads and bridges

New York City Department of City Planning (NYCDCP)

Consultation regarding land use, zoning and public policies; Waterfront Revitalization Plan Consistency

New York City Department of Environmental Protection (NYCDEP)

Consultation related to NYCDEP's water, wastewater or stormwater systems and other environmental topics

New York City Department of Parks and Recreation (NYC Parks)

Consultation related to Section 4(f) of the U.S. Department of Transportation Act

Metropolitan Transportation Authority (MTA) – New York City Transit

Consultation regarding transit services

New York Metropolitan Transportation Council (NYMTC)

Consultation regarding traffic modeling and forecasting

Federal Aviation Administration (FAA) Consultation regarding JFK Airport

New York and Atlantic Railway Consultation regarding railroad bridges in project area

In addition to the Cooperating and Participating Agencies, there are many other agencies and entities

that will be asked to provide technical information and input throughout the development of the Project

and with whom the project team will share information. These may include first responders and other

regional and municipal agencies/organizations.


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2.2 Agency Contact Information

Table 2 lists contact information for the Lead and invited Cooperating and Participating Agencies for the

Project.

Table 2: Agency Contact Information

Agency Phone Website

Federal Highway Administration (202) 366- 4000 https://www.fhwa.dot.gov/

New York State Department of Transportation (518) 457-6195 https://www.dot.ny.gov/index

New York State Department of Environmental Conservation

(718) 482-4077 http://www.dec.ny.gov/

New York State Office of Parks, Recreation & Historic Preservation - State Historic Preservation Office (SHPO)

(518) 268-2166 https://parks.ny.gov/

New York State Department of State (518) 486-9844 https://www.dos.ny.gov/

U.S. Environmental Protection Agency (212) 637-3747 https://www.epa.gov/

Long Island Rail Road (718) 217-5477 https://www.mta.info/lirr

Port Authority of New York and New Jersey (212) 435-7000 https://www.panynj.gov/

New York City Department of Transportation (212) 839-7710 http://www.nyc.gov/html/dot/html/home/home.shtml

New York City Department of City Planning (212) 720-3626 http://www1.nyc.gov/site/planning/index.page

New York City Department of Transportation (212) 839-7710 http://www.nyc.gov/html/dot/html/home/home.shtml

New York City Department of Environmental Protection

(718) 595- 5244 http://www.nyc.gov/html/dep/html/home/home.shtml

New York City Department of Parks and Recreation (718) 760-4053 https://www.nycgovparks.org/

Metropolitan Transportation Authority - New York City Transit

(212) 878-7000 http://www.mta.info/nyct

New York Metropolitan Transportation Council (212) 383-7200 https://www.nymtc.org

Federal Aviation Administration (718) 553-3285 https://www.faa.gov/

New York and Atlantic Railway (718) 497-3023 http://www.anacostia.com/railroads/nya


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Section 3. Schedule and Methodologies

3.1 Project Schedule

The environmental review process includes opportunities for agencies and the public to provide input.

Table 3 provides an overall project schedule with key coordination points. Anticipated completion dates

are included for informational and resource planning purposes. Timeframes and review periods are

established in accordance with 23 CFR 771 and as amended by § 1305, 23 U.S.C 168 (d) of the FHWA

procedures for implementing NEPA, and NYSDOT policies and procedures, including existing agreements

(e.g., review periods established in the NYSDOT/FHWA/SHPO Section 106 Agreement).

Table 3: Overall Project Schedule

Milestone Anticipated Completion Date

Notice of Intent Publication June 1, 2017 (actual)

Scoping Meeting September 2017

Initial Cooperating Agency Meeting1 October 2017

Participating Agency Meeting2 October 2017

Scoping Report Publication December 2017

Notice of Availability of the Draft EIS (DEIS) September 2018

Public Hearing October 2018

End of DEIS Comment Period3 November 2018

Publish Joint Final EIS & Record of Decision February 2019

1Subsequent Cooperating Agency Meetings are anticipated on a monthly or bi-monthly basis throughout the EIS process 2Subsequent Participating Agency meetings, including one-on-one meetings, will be held as needed throughout the EIS process 3The DEIS comment period will be a minimum of 45 days and a maximum of 60 days.

Cooperating and Participating Agencies will be asked to submit comments during scoping that

summarize their jurisdiction and/or special expertise related to the project area. FHWA and NYSDOT will

collaborate with Cooperating and Participating Agencies on methodologies for documenting

environmental conditions and assessing effects. The agencies will be notified of the availability of the

Draft EIS (DEIS) and Final EIS (FEIS) and be given appropriate comment opportunities. Following the

Record of Decision, the appropriate agencies will be consulted to obtain any necessary permits for the

Project.


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3.2 Methodology for the Environmental Analyses

Below is a description of the applicable social, economic, and environmental topics to be reviewed in the

EIS. The environmental studies will be conducted in accordance with the NYSDOT Environmental Manual

(TEM), FHWA’s “Environmental Impact and Related Procedures” (23 CFR 771) and other applicable

guidance and regulations. In accordance with CEQ implementing regulations at 40 CFR §1502.16, the EIS

will include the assessment of unavoidable adverse impacts, the relationship between short-term uses

of man’s environmental and the maintenance and enhancement of long-term productivity, and any

irreversible or irretrievable commitments of resources.

Established procedures will be used for assessing effects; separate environmental methodologies will be

developed as needed for topics where NYSDOT is varying from established procedures. A traffic study

will be conducted to assess the Project’s effects to the transportation system, including freeways,

ramps, local roadways, intersections, transit, and pedestrian/bicycle facilities. The traffic data from this

study will be used for the air quality and noise analyses.

Table 4: Summary of Methodologies

Subject Area Methodology

Land Use Assess the Project’s potential effects to proximate land uses, and assess consistency

with local plans and population characteristics. The Project is located in a fully

developed area of Queens County and has limited potential to affect population

characteristics, land use, or land use plans for the area.

Neighborhood and Community

Cohesion

Evaluate the Project’s potential to divide neighborhoods; isolate communities;

generate new development; and affect development trends.

Social Groups Benefitted or Harmed,

including Environmental Justice

Assess potential effects on vulnerable populations, and determine whether the

Project would have disproportionately high and adverse impacts on minority or low-

income populations. A preliminary assessment indicates that minority and low income

populations are present within the study area.

Schools, Recreational Areas, and

Places of Worship

Evaluate potential effects to schools, recreational areas, and places of worship.

Within 500 feet of the project limits, there are schools, including, but not limited to,

the Archbishop Molloy High School located on Manton Street, SLCD High School

located on 136th Street, and Al-Iman School located at 89-89 VWE, as well as several

parks and places of worship.

Regional and Local Economies; Effects

to Businesses

Evaluate whether the Project would affect access to and/or operation of businesses

within the study area. There are commercial uses within the study area.

Wetlands and Surface Waters

Conduct a field investigation and wetland/surface water delineation in accordance

with applicable regulations.

If necessary, prepare wetland/surface water maps and report(s); assess potential

effects; identify mitigation measures (as needed); identify permitting requirements

(as needed); and coordinate with NYSDEC and USACE.

Wetlands are not anticipated within the project limits.


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Surface Water Quality

In accordance with applicable regulations, collect information on the surface water

bodies in the study area; verify NYCDEP combined sewer outfall (CSO) drainage areas;

assess the potential for soil erosion and sedimentation; assess both temporary and

permanent measures that may be used to avoid or minimize and control soil erosion,

sedimentation, and surface water pollution during and after construction; and

identify permitting requirements.

The Project is located entirely within the Jamaica Bay Sewershed. The area

immediately north of Hillside Avenue to Liberty Avenue and portions of the

southbound Service Road and ramps from Rockaway Boulevard to the Belt Parkway

are located within the CSO drainage area.

Floodplains

In accordance with applicable regulations, identify floodplain boundaries. If

necessary, assess the risks and effects on floodplain values; identify mitigation

measures for adverse effects (as needed); and document the "Only Practical

Alternative Finding" for a significant encroachment (as needed).

Coastal Resources

Evaluate consistency of the Project with NYS coastal policies and the NYC Waterfront

Revitalization Program. Tasks will include preparation of state and city coastal

consistency forms.

The section of the study area south of the Belt Parkway is within the New York City

Coastal Zone.

Groundwater Quality

In accordance with applicable regulations, identify sole source aquifers, determine

aquifer status, estimate additional drainage, pollutant loads and impediments to

groundwater, and assess the potential for impacts to local groundwater quality.

The Project is located within a designated federal sole source aquifer for Long Island.

General Ecology and Wildlife

Resources

Identify the ecological characteristics and habitats within the study area. Evaluate the

nature, extent, and significance of potential effects of the Project on ecological

communities and habitats. If adverse effects are anticipated, identify mitigation

measures in consultation with the appropriate agencies.

Endangered and Threatened Species

Identify federal and/or state threatened, endangered, and proposed species in the

study area. If species are identified, subsequent tasks will include documenting the

habitat types in the project vicinity, determining whether they are suitable habitats

for the identified species, assessing effects to the species (as applicable), and

identifying mitigation measures for adverse effects in consultation with appropriate

agencies (as needed).

Historic and Cultural Resources

In accordance with Section 106 of the National Historic Preservation Act, tasks will

include identifying historic and cultural resources within the study area, assessing

effects on identified resources, and resolving adverse effects (if any). Consultation

with the State Historic Preservation Office and Advisory Council on Historic

Preservation will occur, as needed.

Known historic resources include three of the four Long Island Rail Road bridges.

Parks and Recreational Resources

Evaluate potential effects on parkland within the study area. Parks within the study

area include, but are not limited to, Maple Grove Park, Dr. Charles R Drew Park, and

several playgrounds. Parks will be evaluated to determine if Land and Water

Conservation Funds (LWCF) were used; however, no conversion of this parkland is

anticipated.


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Visual Resources Prepare a Visual Impact Assessment (VIA) that establishes an Area of Visual Effect

(AVE), provides an inventory of existing visual quality, assesses the potential impacts

on visual quality, and determines if any mitigation or project enhancement is

required.

Air Quality Air quality analyses for this project will include a particulate matter microscale analysis, mesoscale analysis and mobile source air toxic analysis. The analyses will be conducted in accordance with methodologies in NYSDOT’s TEM and FHWA guidance and using the most recent version of USEPA’s MOVES model and USEPA modeling guidance. If adverse effects are identified, mitigation measures will be determined.

Energy and Greenhouse Gases Evaluate the Project’s potential effects on energy consumption and direct (on-road)

greenhouse gas (GHG) emissions using the most recent version of USEPA’s MOVES

model and NYSDOT guidance.

Traffic Noise Conduct a traffic noise analysis in accordance with FHWA traffic noise regulations (23

CFR 772) and NYSDOT “Noise Analysis Policy and Procedures.” If impacts are

identified, noise abatement measures will be evaluated.

Asbestos Conduct an asbestos assessment preliminary investigation to identify asbestos-

containing materials that are expected to be disturbed as a result of the Project.

Identify activities that would occur during final design to positively identify asbestos

content. Identify measures that would be implemented to ensure proper handling,

transport, and disposal of such materials during construction.

Hazardous Waste and Contaminated

Materials

Conduct a contaminated materials and hazardous substances assessment to identify

the potential for encountering hazardous and non-hazardous contaminated materials

as a result of the planned construction work. Identify measures that would be

implemented during construction for the proper handling, transport, and disposal of

any excess material to protect public health, worker safety, and the environment.

Indirect Effects Describe those reasonably foreseeable effects that would be caused by the Project

but may occur at a later time or are farther removed in distance.

Cumulative Effects Identify past, present, and reasonably foreseeable actions within the study area.

Assess the impact on the environment that would result from the incremental impact

of the action when added to these past, present, and reasonably foreseeable future

actions. If adverse effects are identified, describe measures to mitigate the effects.

Section 4(f) Evaluation In accordance with Section 4(f) of the U.S. Department of Transportation Act of 1966

and using FHWA guidance, evaluate the “use” of Section 4(f) resources by the Project.

Agency coordination and concurrence will be required.

Known resources include three of the four Long Island Rail Road bridges.

Construction Effects Consider the construction-related effects to traffic, air quality, noise, and water

quality and other applicable environmental topics.


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Section 4. Public Involvement Activities

NYSDOT and FHWA are committed to an open, participatory, environmental review process for the

Project and will solicit early and frequent feedback from the public and from agencies, encourage open

discussion of project details and issues, and provide opportunities for comments and questions. A

separate Public Involvement Plan (PIP) has been developed for the Project.

4.1 Public Scoping Meeting

A public scoping meeting will be held to provide an early opportunity for the public to participate in the

project development. The scoping process allows the public and agencies to comment on the project

purpose and objectives, help determine the scope of issues to be considered, and comment on

reasonable alternatives for consideration in the Draft EIS. The public scoping meeting is the initial public

presentation of the project scope and schedule.

4.2 Public Hearing

A public hearing will be held after the Draft EIS has been issued to provide an opportunity for the public

to submit comments on the Draft EIS orally and/or in writing. The public hearing will include an open

house with informational displays and a presentation. The public will also be invited to submit

comments during the circulation of the Draft EIS. Comments provided at the public hearing and during

the DEIS comment period will be responded to in the Final EIS.

4.3 Other Meetings

In addition to the public scoping meeting and hearing, the project team will solicit additional input

through meetings and dissemination of project information. Additional outreach resources will include a

website where project information will be posted, email and hard mail information distribution,

brochures, and maintenance of a stakeholder database.

4.4 Limited English Proficiency Outreach

Individuals who do not speak English as their primary language and who have limited ability to read,

speak, write, or understand English are considered “limited English proficient” or LEP. Based on data

available from the United States Census Bureau’s American Community Survey, in the 61 census tracts

covering the study area, exclusively English speakers in the study area represent approximately 57% of

the population. Spanish/Spanish Creole is the primary non-English language spoken in the study area

(19%). Chinese and Russian languages each account for less than 3% of the total population in the

project area.

Advertising of public meetings will be placed in a local Spanish newspaper, and dual language (English

and Spanish) flyers will be distributed for the public meetings and the public hearing. Informational

materials, such as the project description brochure and notices of meetings, will be bilingual and posted

on the project website. During the public meetings and the public hearing, an on-site Spanish interpreter

will be available. Additional LEP outreach may be necessary and will be determined as the project

proceeds.

4.5 Environmental Justice Outreach

Executive Order (EO) 12898, Federal Actions to Address Environmental Justice in Minority Populations

and Low-Income Populations, dated February 11, 1994, requires consideration of whether a proposed

action would disproportionately and adversely affect minority or low-income groups. Among other


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directives, compliance with EO 12898 includes documenting the opportunities for affected minority

and/or low-income communities to provide input on a project.

The study area includes communities with both minority and low-income populations. Public meetings

and the hearing will be sited, scheduled, and planned to provide opportunities for participation by

environmental justice populations.

4.6 Americans with Disabilities Act Outreach

Public meetings will be held in locations that comply with the Americans with Disabilities Act (ADA) to

provide convenient access to meetings for individuals with disabilities. Sign language interpreters will be

available at formal public meetings and other meetings, if requested. Public notices announcing public

meetings will provide instructions for requesting other special accommodations.


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Page 12

Section 5. Revision History

Table 5 – Revision History

Version Date Name Description

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