tiger v application for downtown crossing project

7/28/2019 Tiger V Application for Downtown Crossing Project

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Downtown Crossing, Phase 2New Haven, Connecticut

Tiger V Capital Grant Application

June 3, 2013

John DeStefano, Jr.Mayor

Kelly Murphy, AICPEconomic Development

Administrator


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OFFICE OF THE MAYORI 65 CIRTRCTI STREET NEW HAVEN CoNNECTICuT 06510

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J[INDESTPPA\JR.is ow ,tu s qreaiest resourc e

May 31, 2012Anthony FoxxSecretary DesignateUnited State s Department of Transportation1200 NewJersey Avenue SEWashington, D.C. 20590

Re: Downtown Crossing, Phase 2, New Haven, CTRequest for TIGER V Grant Assistance

Dear Secretary Fox x:I am pleased to submit th is application for $10 million in TIGER V funding in support of the $12.5 million Phase 2 ofDowntown Crossing New Havens bold effort to replace the unfinished Route 34 with a pair of urban boulevards, createnew land for economic development and job creation and to reconnect the surrounding neighborhoods.

The economic recovery in Connecticut ha s been slow, but we are moving forward and growing jobs in New Haven, mostrecently as a result ofDowntown CrossingPhase 1 . Thanks to USDOTs TIGER II grant, we have unlocked valuable land inclose proximity to the Yale School ofMedicine and Ya le New Haven Hospital, enabling us to attract $100 million i n privateinvestment to construct a new 425,000 s.f. medical-lab/office building in the former highway right-of-way. In turn, thisinvestment has attracted Alexion Pharmaceuticals with a commitment to bring nearly 1,000 permanent jobs, cementing NewHaven as a world class center for bio-medical and life science research. TIGER II improvements are well underway andbuilding construction will commence next week, with both projects scheduled for completion in summer 20 15.ihe (:j 1si to expand on this success and is proposing transportation improvements that will further the goals ofDowntown Crossing and enable $300 million worth of private investment. A developer is engaged at the site of our proposedTIGER \T infrastructure Improvements and intends to build a I 0 mill ion sf. mixed-use, mixed-income development adjacentto our new urban boulevards and in close proximity to our two train stations. The City is committing $2.5 million to th isproject and is truly excited by this opportunity to advance the economic rec overy of our city, state and nation.Thank you for your consideration of this important project. If you have aiw questions do not hesitate to contact Kelly Murphy,the Citys Economic Development Admimstrator at 203.9462366 or Icmurphy(dnewhavenctnet.


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TIGER V Grant ApplicationDowntown Crossing, New Haven

Table of Contents

Section 1 Project Description . . . . . . . . . . . . . . . . . . . . . . . 1

A. Statement o WorkB. Detailed ScheduleC. Project Background

Section 2 Project Parties . . . . . . . . . . . . . . . . . . . . . . . . . . .12

Section 3 Grant Funds and Sources. . . . . . . . . . . . . . . . . 14

Section 4 Selection Criteria . . . . . . . . . . . . . . . . . . . . . . . 15

A. Long erm Outcomesi. State o Good Repairii. Economic Competitiveness

iii. Livabilityiv. Sustainabilityv. Saety

vi. Project ReadinessB. InnovationC. Partnership

i. Jurisdictional & Stakeholder Collaborationii. Disciplinary Integration

D. Results o Benet-Cost Analysis

Section 5 Approvals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

A. National Environmental Policy ActB. LegislativeC. State and Local Planning

Section 6 Appendix

A. Financial FeasibilityB. Full Cost-Benet AnalysisC. NEPA - Categorical ExclusionD. Financial Commitment and Letters o Support

E. Economically Distressed Area DeterminationF. Federal Wage Rate Certication

Figures

1. Project Locus . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

2. Phase 2 Downtown Crossing, Phase 2, Project Context . . . . 4

3. Conceptual Full Build Downtown Crossing and Surrounding

Area (2012) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

4. Intersection o Orange Street at MLK Boulevard . . . . . . . . 25


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Section 1. Project Description

Te City o New Haven is requesting $10 million in IGERV unding or Phase 2 o Downtown Crossing which includesroadway, stormwater, bike and pedestrian inrastructureimprovements at a total cost o $12.5 million. Te Phase 2inrastructure improvements enable $300 million o privateinvestment at the ormer Coliseum site, which is proposed tobe one million square eet o mixed use and mixed-incomedevelopment. Tis public-private opportunity is urther validationo the good investments and substantial progress made throughexecution o the Phase 1 Downtown Crossing project.

New Haven is the social and economic center o south centralConnecticut and is among the astest growing cities in all o New

England in terms o both population and economic signicance.Economic drivers in education, the lie sciences, advancedmanuacturing, I/Digital Media and supporting service industriesare supporting new job growth. New Havens job base grew 2% in2011 (twice the state average) and there are now 78,000 jobs in theCity.

At the same time, however, the Citys resident unemployment rateis 11.6%, well above the State (8.2%) and United States (7.6%).Te City is ranked the 15th most distressed municipality (out o

169 in Connecticut) due to low per capita income, high povertyand other actors aecting the quality o lie in the Citys innercity neighborhoods. Downtown Crossing thereore is a key part othe Citys eorts to reconnect the residents o the Hill and otherneighborhoods with the Downtown/medical district employmentcenters.

Downtown Crossing is the Citys master plan to remove Route34, create jobs, and bring private investment to underutilizedland. Extensive inormation and resources including constructionupdates are available at the project website:www.downtowncrossingnewhaven.com

Te Phase 2 inrastructure improvements will improveconnectivity, and saety or motor vehicles, bikes, and pedestrians.Te Phase 2 improvements also mitigate undesirable traccharacteristics (speed and congestion) and address certainstormwater fooding conditions in the Route 34 corridor in asustainable ashion. ogether, these improvements will enable anew mixed use/mixed-income development at the Coliseum site

and other substantial private investments in the vicinity.

Aerial of Route 34 corridor


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Phase 1 o Downtown Crossing was unded under a IGER IIgrant award o $16 million and has generated $100 million privateinvestment in the 100 College Street site and 600-960 permanentjobs in bio-medical and lie science research as well as over 2,000construction jobs. Both the inrastructure improvements and the

building construction are ongoing and set or completion in 2015.Te City has proven the ability to deliver on commitments, andleverage public dollars to generate private investments. Phase 2 will

be a continuation o this success.

A. Statement o Work

Phase 2 is a logical extension o the Phase 1 project, and includesve elements:

1. Intersection of Orange Street at MLK Boulevard2. Highway transition to urban boulevard at MLK Boulevard

3. Pedestrian connection improvements at Route 34 overpass

4. Bike lane connection to regional bike system at Water Street

5. Stormwater improvements at Route 34

An overview o the Phase 2 improvements and their locationrelative to the Phase 1 public and private investments is shown

on Figure 1. Each o the improvements contributes to the largerobjectives o the Downtown Crossing project and the nancialviability o the development o the Coliseum site.

Phase 2 o Downtown Crossing integrates complete streets,green inrastructure and ransit-Oriented Development (OD)concepts in the immediate vicinity o the Route 34 corridor to takeadvantage o the existing inrastructure and to create patterns odevelopment that refect the values and vision o the community.It is the Citys goal to implement a development plan that will

reunite distressed neighborhoods with Downtown while preservingcorridor mobility, enhancing saety, and improving economicconditions.

Phase 1 construction underway


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Figure 1: Project Locus

YALE SCHOOL OF MEDICINE

YALE NEW HAVEN HOSPITAL

YALE UNIVERSITY

MEDICAL DISTRICT

PHASE 1

100 COLLEGE STREET

DEVELOPMENT

COLISEUM SITE DEVELOPMENTSTORMWATER IMPROVEMENTS

AT ROUTE 34

INTERSECTION OF ORANGE

STREET AT MLK BOULEVARD

UNION STATION

HIGHWAY TRANSITION TO URBAN

BOULEVARD AT MLK BOULEVARD

BIKE LANE CONNECTION TO REGIONAL

BIKE SYSTEM AT WATER STREET

PEDESTRIAN IMPROVEMENTS

AT ROUTE 34 OVERPASS

STATE STREET STATION


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YALE SCHOOL OF MEDICINE

YALE NEW HAVEN HOSPITAL

YALE UNIVERSITY

MEDICAL DISTRICT

PHASE 1

100 COLLEGE STREET

DEVELOPMENT

COLISEUM SITE DEVELOPMENT

PEDESTRIAN IMPROVEMENTS

AT ROUTE 34 OVERPASS

STORMWATER IMPROVEMENTS

AT ROUTE 34

BIKE LANE CONNECTION TO REGIONAL

BIKE SYSTEM AT WATER STREET

INTERSECTION OF ORANGE

STREET AT MLK BOULEVARD

Figure 2: Downtown Crossing, Phase 2, Project Context

UNION STATION

HIGHWAY TRANSITION TO URBAN

BOULEVARD AT MLK BOULEVARD

STATE STREET STATION


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Phase 2 inrastructure improvements have, rom a transportationperspective, independent utility and are essential to improve saetyor vehicular, pedestrian and bicycle access in order to relievecongestion and improve trac fow. Te detailed statement owork is as ollows:

1. Intersection of Orange Street at MLK BoulevardPhase 1 construction has shited Route 34 trac to MLKBoulevard and created a separate exit lane or trac to accessDowntown Crossing service drives. Te exit lane conditionwas an interim x meant to suce until the ull build projectis completed. Te interim conditions are a detriment to theviability o the adjacent Coliseum site development. racconditions are less than ideal or bicyclists and pedestrians,and the uture connection o Orange Street to the Union

Station is hindered by the presence o many lanes o trac.

Phase 2 will convert the exit ramp, highway design standardinto a true urban at-grade intersection and a standard Citystreet design. Features o the improved condition include:

90 degree, -type, at-grade intersection

Orange Street our lane, two way conguration

Service drive entrance located to the West o OrangeStreet

Additional Westbound through lane carried throughOrange Street

Phase 2 will construct the intersection o Orange Street andMLK Boulevard as a gateway into the City, and will createmulti-modal connections or pedestrians, bicyclists andtransit users. Tis intersection is a logical interim step towardthe ull build project as it creates the conditions to allowuture connection o Orange Street to the South FrontageRoad and to the train station.

Orange Street will be reconnected across the Route 34corridor as part o the later phase Full Build and willintersect with MLK Boulevard, South Frontage Road, andDowntown Crossing Service Drives.

2. Highway transition to urban boulevard at MLK BoulevardTe Federal Highway Administration (FHWA) andConnecticut DO required construction o transitionelements on Route 34 to reduce travel speeds o westboundtrac as part o the Phase 1 Downtown Crossing approvals.Te improvements begin at the interstate highway rampmerge and continue west to the MLK Boulevard intersectionat Orange Street. Te purpose o this improvement is toreduce travel speed o westbound trac as they approach thegateway into the City, and thereby improve saety through

reduction o collisions.

Te Phase 1 project began with the installation o signs, andrevisions to pavement markings and lane narrowing throughrestriping o Route 34 within the project limit.

Te Phase 2 improvement project includes signicantroadside measures such as landscaping, and street lights inorder to create visual indication to motorists that they havetransitioned to a city street condition.

3. Pedestrian connection improvements at Route 34 overpassTe Route 34 overpass o Union Avenue is the mostdirect path rom Union Station to the Coliseum site andDowntown. Tis pedestrian pathway is uninviting andcharacterized by its damaged suraces and dark sidewalks.Te scope o work at this location would provide thelighting, public art and sidewalk surace reconstruction inorder to create an inviting path or bikes and pedestrians toaccess the train station.


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4. Bike lane connection to regional bike network at Water

StreetTe scope o this improvement will extend a buered bikelane acility approximately 1,000 eet rom the currentterminus o the regional bike system at Water Street to the

Orange Street at MLK Boulevard intersection. Tis extensionwould provide a direct connection to the Coliseum site aswell as opportunities or cyclists to access Downtown andUnion Station area destinations. Te bike lane will connectto the bike lane system installed by the Phase 1 DowntownCrossing project.

New Haven boasts some o the highest bike ridershiplevels in all o New England. Te City has adopted aComplete Streets Manual and has worked or the last our

years in implementation o bike acilities, amenities andaccommodations as part o the routine capital investmentplan. Te Phase 2 project will provide the missing linkconnection rom the Downtown Crossing project tothe Regional Bike network along Water Street. With theconstruction o this section, the regional bike routes availableto commuters will allow access to the Downtown CrossingDevelopments rom the adjacent owns o Branord, WestHaven and Hamden along the Farmington Canal andshoreline bike path acilities.

5. Stormwater improvements at Route 34Route 34 and has experienced more requent street foodingin recent years. Over the last three years, the City hasrecorded three major storm events. During one o thesestorms, three eet o water fooded Route 34, making itimpassable. Tese storms have also fooded the emple Streetparking garage routinely every two years, causing signicantdamage.

o address this issue, the City completed a study in2012 to identiy a long-term solution to these foodingproblems. Tat study recommended conventional drainageimprovements that included larger storm drains and reliestorm drains to convey food waters downstream through

the City. Tat study identied $29 million o stormwaterimprovements that would be required to manage a 10-year requency storm. Additional improvements would berequired to manage all o the roo runo that now drainsto combined sewers in an improved storm drainage system.Tat would add another $25 to 30 million dollars to theproject (or a total o $54 to 59 million).Te Phase 1 project adopted a number o drainage designimprovements to incorporate several o the Flooding Study

recommendations. Te project design was meant to be therst step to addressing long term improvement o stormwaterconditions in the Route 34 area.

Te Phase 2 project proposes an appropriate next step tomanage stormwater using a green inrastructure approach.Tis proposed approach consists o two elements.

Te proposed rst element is the construction o asubsurace detention and inltration system below

South Frontage Road. Te prosed system will provide5.8 acre eet o subsurace storage or stormwater runothat historically had drained into the Route 34 foodingarea. Te water stored in these chambers would either bereleased when food waters receded or would inltrateinto the ground and recharge groundwater.

Te second element o this project is creating a wateramenity and additional stormwater storage in open spacenear the Route 34 and I-95 ramps.


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Te stormwater approach recommended here will allow theCity to avoid some o the cost contemplated in the FloodingStudy by using groundwater recharge and sustainabledrainage design. Further, the City will avoid some longterm maintenance costs through reduced inrastructure

requirements.

B. Detailed Schedule

Project Schedule 2013 2014 2015 2016 2017

Design

Permitting

Funding (TIGER)

Phase 2 Construction

Intersection o Orange Street at MLK Boulevard

Highway Transition to Urban Boulevard at MLK Boulevard

Stormwater Improvements at Route 34 Overpass

Bike Lane Connection to Regional Bike System at Water Street

Pedestrian Improvements at Route 34 Overpass

Coliseum Site Development

Te Phase 2 Downtown Crossing project will complete alldesign, permitting and obligation o unding in a time rame tosynchronize with the completion o Phase 1 construction. Phase2 construction will begin sequentially and immediately atercompletion o Phase 1 improvements in the MLK Boulevardcorridor in order to provide the most orderly treatment o localand regional trac during construction.

Te City is positioned to execute the completion o design andstart construction in accordance with the unding requirements othe IGER V program. All requirements o the State and Federaloversight o the program can be met beore the June 30, 2014deadline. All unding can be obligated by September 30, 2014.Construction will proceed concurrent to the private investmentand private construction adjacent to the Phase 2 construction onthe Coliseum site.


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C. Project BackgroundRoute 34 was constructed in the 1950s and extends 0.5miles rom Interstate 95 to a terminus at Exit 3. Te six laneexpressway was originally proposed to extend as a ull expresswayten miles westward rom New Haven to the town o Derby.

When the Oak Street neighborhood was demolished to makeway or Route 34, over 881 households were relocated and 350businesses were cleared in order to build the highway. Te Citysvibrant neighborhoods, Union Station, and Downtown wereseparated, and as a result, community development oundered.Te expressway, opened in 1960 as a limited access highwaylinking I-91/I-95 and downtown, carries approximately 75,000vehicles per day. Te plan to extend Route 34 west to Derby wasabandoned in the 1970s.

Beginning in 2002, the City o New Haven has worked with Stateand Federal ocials to plan or redevelopment o the land andremoval o the highway. Extensive materials on the history andbackground o Route 34 and the Downtown Crossing projectwere provided as part o the IGER II Grant Application. Tesematerials are available on the project website.

Phase 1 infrastructure and 100 College Street construction underway


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Phase 1 o the Downtown Crossing project included: Replacing College Street bridge across Route 34 with a surace

road and ll structure to create a more typical Downtown Street.

Realigning and maintaining driveway access to the Air RightsGarage by relocating trac to Exit 1 and removing westbound

o-ramps at Exits 2 and 3.

Converting MLK Boulevard into a westbound urban boulevardby adding one lane between the Air Rights Garage and ChurchStreet and upgrading trac signals.

Encouraging pedestrian and bicycle use with urban design andlandscape improvements and increase saety via new sidewalks andbikelanes plus installing new landscaping and waynding signs.

Phase 2 o the Downtown Crossing project:

Phase 2 Downtown Crossing also supports and enables newdevelopment on the ormer Coliseum site and redevelopment inadditional areas that were once removed rom transit access due tothe lack o connectivity. Te vision or the Coliseum site is a trulymixed-use and mixed-income regional destination which stitchestogether north, south, east and west New Haven, providing acentral community-gathering place and serving as a key lynchpinto uniying the Citys urban abric.

Te Coliseum site development concept is to create a dynamic

urban village incorporating: mid to high end residential rentalapartments over ground-foor retail; a high-rise residential towerover a retail podium; and on the south end o the site, ronting onMLK Jr. Blvd/Route 34, a hotel and multi-unctional center, live/work space, and a class A oce acility, all centered on a retail-activated public square and lane.

Summary o Phase 2 private investmentLeveraged by TIGER V unding

Residential: 524 units

Retail: 75,000 square eetClass A Oce: Up to 200,000 square eetHotel: 160 rooms + multi-unction space and tness centerPublic Space & Retail Lane: 52,000 square eetRootop Green Space: 25,000 square eet

Total Development Program: One million square eetTotal Private Investment: $300 million private investment

As a highly integrated mixed-use/mixed-income site, all

components o the Coliseum site development plan areinterrelated. Successul retail, restaurants and activated publicspace, require pedestrian and vehicular trac, convenient access,and visibility to thrive. Tese amenities create a destination andprovide the oering that drives value and a quality o lie oeringto all other parts o the development. Tey make the district anattractive place to live, work, and visit and those user populationsthen serve as important customer bases or a higher density oshops and restaurants.

A quality hotel development requires access to these amenitiesto oer an urban village experience and drive room-nightdemand; while the ability to attract a Class A oce anchor will bemeaningully infuenced by proximity to quality housing optionsand retail amenities or its employees, as well as accommodationsor its business visitors. Furthermore, this diversity o uses andusers (residents, employees, hotel guests, and other visitors) ensuresthe district remains active at all times o the day, week and year,supporting a sustainable micro economy.


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Te Phase 2 public inrastructure improvements are critical tothe success o the private development. Te at-grade intersectionadjacent to the site is the enabling eature that creates the accessand pedestrian conditions making the adjacent site walkableor pedestrians and creating true urban orm in lieu o a grade

separated highway condition. Getting the Route 34 intersectionat MLK Boulevard and Orange Street right is essential to enablingthe private investment in the Coliseum site.

Summary o Phase 2 private job creationLeveraged by TIGER V

Permanent ull time jobs: 1,400-1,900675 (hotel, retail and residential), 727-1,172 (oce tower)

Construction Jobs: 1,700-2,400 annually during build-out

(Detail Benet-Cost Analysis in Appendix B.)

Full Build o the Downtown Crossing project will include:

Connecting emple Street to South Frontage Road

Connecting Orange Street through an at-grade intersectionwith South Frontage Road connecting to Union Station

Enhancing the streetscape along Union Avenue to UnionStation

Completing the South Frontage Road urban boulevard

Replacing the Church Street Bridge with a surace road and llstructure

From a transit perspective, New Haven is among the Northeastsbusiest cities or commuter and regional rail. Downtown Crossingis located within - mile o the Citys two stations: Union

Station and State Street Station. Union Station, which providesAmtrak, MA Metro-North and Connecticut Shoreline Eastservice, and State Street Station, which provides MA Metro-North service and Connecticut Shoreline East service, collectivelyhandle over 4.2 million passengers a year. Tis means that all

redevelopment in the area o Downtown Crossing can takeadvantage o a transit rich environment.

When complete, Downtown Crossing will improve regional andlocal trac mobility and saety, and support a shit to multi-modal transportation including human-powered modes byimproving access throughout the downtown or all and providingimprovements that enhance the downtown with this importantgateway into New Haven.

Phase 2 Private development at Coliseum site


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Figure 3: Conceptual Full Build Downtown Crossing and Surrounding Area (2012)

DOWNTOWN CROSSING

DEVELOPMENT

COLISEUM SITE

DEVELOPMENT


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Section 2 Project Parties

Te City o New Haven is joined by its partner LiveWorkLearnPlayInc. as nancial supporters o Downtown Crossing.

City o New Haven Te City o New Haven ($2.5 millionnon-ederal contribution) will oversee the design andconstruction o the project. Te City will be the grant recipientand will be responsible or administering the grant. Te City isa Community Development Block Grant (CDBG) entitlementcommunity and has a proessional sta responsible or ederalgrant administration and reporting procedures.

LiveWorkLearnPlay Inc. LiveWorkLearnPlay Inc. is thedeveloper o the Citys ormer Coliseum site with extensive

experience resolving, repurposing, and repositioningneighborhoods, projects and assets in order to deal with therealities o the challenging real estate marketplace. Tey plan toinvest $300 million in private unds to accomplish a mixed-use,mixed-income project on the site.

Te City has received unequivocal support or the project rommany community leaders and regional agencies including (SeeAppendix D or support letters):

Te Honorable Representative Rosa L. DeLauro Te Honorable Connecticut Senator oni Harp Te Honorable Connecticut Representative Roland Lemar Te Honorable Connecticut Representative Juan Candelaria ASSA ABLOY Connecticut United or Research Excellence Incorporated Economic Development Corporation o New Haven Greater New Haven Chamber o Commerce Regional Plan Association

REX Regional Xcelleration South Central Regional Council o Governments UIL Holdings Corporation own Green Special Services District

Visit New Haven Yale-New Haven Hospital Yale University LiveWorkLearnPlay Inc.

Te critical actor in the success o Phase 1 has been extensive

collaboration with the many stakeholders, and the regulatoryagencies involved. Te demolition and removal o a highway isno small undertaking and the City has emphasized outreach,engagement and communication rom the very beginning. Tetechnical challenges have been overcome through persistence anddedication by experts at all levels (Federal, State, and Local) as wellas the contributions o the neighborhoods, business owners andmajor employers in New Haven.


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An overview o the Phase 1 experience exhibits the City o NewHaven track record o success:

Planning and Public OutreachPlanning or the teardown o the highway began in 2006, and waspublished in 2007. Te City has conducted nearly 100 meetingswith neighborhood groups, business owners, and public outreachmeetings both large and small. Extensive meetings with adjacentproperty owners and major employers such as Yale-New HavenHospital have led to strong communication and a oundation osuccess or uture phases.

DesignTe design o the Phase 1 project ollowed the oversight processprescribed by the Federal Highway Administration (FHWA)and the Connecticut Department o ransportation (CDO).

Early design considerations set the number o lanes on the urbanboulevard (MLK Boulevard) and the extent to which the projectcould incorporate complete streets measures.

Early design plans contemplated a more utilitarian solution thatprovided extra travel lanes to keep trac moving. However,reactions rom the community indicated a strong desire to havemore walkable and complete streets. Subsequent design plansprovided complete streets enhancements such as narrow travellanes, bike lanes, raised intersections and streetscape amenities

which yielded tremendous public support. More importantly,the City and the CDO were able to work very closely toincorporate these complete street measures without compromisingsaety or mobility.

FHWA and CDO mandate that the project limits oDowntown Crossing extend to the I-91/I-95 Interchange in orderto install transition elements on Route 34 to reduce travel speedso westbound trac. Te purpose would be to reduce travel speedo westbound trac as they approach the gateway into the City,

and thereby improve saety through reduction o collisions.ConstructionTe City completed the design o Phase 1, bid, awarded andbegan construction o the project in February 2013. Concurrentto the design, the City has coordinated the local approvals andconstruction coordination o the 100 College Street project.Extensive coordination o timing, logistics, constructability andresponsibility or design, construction and ownership o public andprivate improvements has been conducted by the City. City stahave orchestrated coordination between the contractors on boththe Phase 1 public and private projects, along with the details oclosing Exit 3 ramps to Route 34 and the maintenance o tracduring construction.

Te City has proven that it has the skills and resources toimplement Downtown Crossing. All o the details have beenmanaged and the commitments have been met.


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Section 3 Grant Funds and Sources /Uses of Project Funds

Te City o New Haven is proposing to submit an application or

unding under the USDO IGER V unding source or Phase 2o the Downtown Crossing Project. Te proposed improvementsto be unded under this application will acilitate the developmento the ormer Coliseum site. Te ollowing is the cost and undingallocation o each proposed improvement:

Scope ElementTotal Cost(millions)

TIGER V(millions)

Non-Federal(millions)

Intersection of OrangeStreet at MLK Boulevard

$4.12 $3.30 $0.82

Highway transition tourban boulevard at MLKBoulevard

$1.00 $0.80 $0.20

Stormwater improve-

ments at Route 34$5.60 $4.48 $1.12

Bike lane connection toregional bike system at

Water Street

$1.05 $0.84 $0.21

Pedestrian connectionimprovements at Route34 overpass

$0.73 $0.58 $0.15

Total $12.50 $10.00 $2.50

Percentage 100% 80% 20%

Te cost estimate was prepared by Fuss & ONeill based on

Connecticut Department o ransportation cost estimatingguidance and includes all clearing and grubbing; maintenanceand protection o trac; mobilization; construction staking;escalation; contingencies; incidentals; survey, design, constructionadministration; and rights o way. Detailed cost estimates areprovided in Appendix A.

Date of Funding Obligation

Funding Source

Total Cost(millions)

Non-Federal(millions)

TIGER V(millions)

September 30, 2014 $12.5 $2.5 $10

Percentage 100% 20% 80%

Te City has secured unding commitments totaling 20% o thePhase 2 project cost.

Te City o New Haven is requesting $10 million in IGER Vunding or Phase 2 o Downtown Crossing which includes roadway,stormwater and bike and pedestrian inrastructure improvements at atotal cost o $12.5 million. Te Phase 2 inrastructure improvements

enable $300 million o private investment at the ormer Coliseumsite, which is proposed to be one million square eet o mixed usedevelopment. Tis public-private opportunity is urther validationo the good investments and substantial progress made throughexecution o the Phase 1 Downtown Crossing project.


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Section 4 Selection Criteria

Downtown Crossing Phase 2 improvements meet the IGER Vprimary selection criteria by providing long term benets, creatingjobs, and generating economic stimulus.

A. Long Term Outcomes

1. State of Good RepairTe NOFA denes a State o Good Repair as Improving thecondition o existing transportation acilities and systems,with particular emphasis on projects that minimize liecycle costs. It is dicult to eectively communicate theconsequences o underinvestment, or conversely, the benetso investing at a given level. It is one thing to explain thebenets o new service to the public and legislatorsnew

service brings economic developmentbut it is harder toconvey the signicance o improving existing acilities.

Maintaining a State o Good repair is essential, however,or historic city centers to grow and adjust to changingeconomic conditions. Route 34 was built at the sametime as the Nations interstate highway system, when NewHaven and the country as a whole had an industrial basedeconomy. Route 34 is now at the end o its useul lie andNew Havens economy is vastly dierent than it was in the

1960s. Downtown Crossing adapts Route 34 to our moderneconomy and creates inrastructure that will be easier tomaintain and adapt over the next 50 years.

Downtown New Haven has signicant market or newbiomedical, and lie science space and real estate demandsthat cannot be supported by the existing Route 34inrastructure. Te inrastructure has become a majorconstraint to the opportunities that exist in economic

development. By converting the Route 34 inrastructurerom an aging highway to a modern city street standard as alocal roadway, the City will dramatically improve the stateo repair o this enabling inrastructure and promote thedevelopment o the surrounding properties.

Te mobility and accessibility goal or Downtown Crossingis simple: to provide a multi-use street network andtransportation system that complements the activity, human-scaled design, and urban character o New Haven whileacilitating access to major employers and Downtown. Improve the condition o existing transportation acilities

Reduce lie cycle costs or roadway inrastructure

Eliminate the need or major rehabilitation orreplacement o the bridges at College and Church Streets

Introduce a demand responsive, coordinated traccontrol system with Downtown New Haven

Downtown Crossing Phase 1 began eliminating a highwaythat is grade-separated rom the rest o the Citys streetnetwork; Phase 2 continues that work and adds additionalcost saving measures.

By changing the deteriorating inrastructure o Route 34and the rontage roads to at-grade intersections, the Citycan save considerably on maintenance costs over the longterm.

Improvements to the underpass at State Street/UnionAvenue provide an opportunity to widen sidewalks oralternate modes o transportation.

Te elimination o Water Street through the Coliseumsite serves to improve bicycle and pedestrian linkagesbetween neighborhoods, thereby enhancing use o theacility by commuters and urther reducing Vehicle Miles


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raveled.

Te proposed stormwater inrastructure and landscapingcreate a signature entry eature to Downtown New Havenrom the interstate system, and it demonstrates a deeperunderstanding and commitment to climate resiliency. While

accommodating climate change may seem too loty a goal,the lie cycle cost o inherent best practices is also greatlyimproved over the conventional method o piping andpumping.

2. Economic CompetitivenessNew Haven is a dynamic and growing city, placing itsresidents, employees and visitors at the cross-section o arts,culture, education, health care, and business. As the secondlargest city in Connecticut, with a population o 129,585

(2011 est.), New Haven is the economic center o a broaderMSA region o 862,813 people (2012 est.), and is hometo an evolving mixed-use urban core, strong and diversecommunities and world-class institutions. While alreadywell-established in New Haven (o the 52 biotech rms inthe state, 39 are located in Greater New Haven), the so-called eds and meds (medical, bio-science, and research/development) employment sector continues to grow.Innovation and economic growth are increasing a result otechnology transers rom world class institutions o highereducation and research, such as Yale-New Haven Hospitaland Yale University.Te growth o these institutions and clusters is importantor the economic health o the nation, not just New Havenand Connecticut. Te City is committed to creating theconditions or growth and investment, and these eorts haveachieved positive results. Te Citys ambitious but eectiveeconomic development strategy has, over the past ve yearsalone, attracted almost $3 billion in new development

projects and job growth aster than the State as a whole.Tese recent developments have included the ollowingmajor public and private investments (among others) in thearea adjacent to Downtown Crossing:

360 State Street (2008): $180 million, 500-unit

residential building above a 25,000 s grocery store(the largest apartment building in the State oConnecticut) (http://www.nytimes.com/2010/07/28/realestate/28newhaven.html?_r=2)

Smilow Cancer Center (2009): $500 million, 497,000 sworld-class cancer treatment acility associated with theYale-New Haven Hospital (http://www.ynhh.org/cancer/why_ynhh/cancer_center.html)

Gateway Community College (2012): $198 million,

367,000 s, 11,000-student higher education acilityrelocated to the central business district (http://www.gwcc.commnet.edu/contact.aspx?id=957)

100 College Street (under construction - 2014 est.delivery): $135 million, 400,000 s med / lab ocebuilding (http://Downtowncrossingnewhaven.com/)


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Downtown Crossing enhances economic competitiveness byunlocking land or redevelopment in close proximity to these

core economic assets. Yale also has large scale collaborationwith industry, such as Gilead Lie Sciences. Tere is renewedinterest by the private sector to locate close to the Yale New Haven Hospital, the Yale School o Medicine and theiraliated organizations. Tis is being clearly demonstrated inPhase 1 with the construction o 100 College Street, whichwill be the world headquarters o Alexion Pharmaceuticals,who were attracted to the site due to its proximity to NewHavens major institutions and inrastructure.

Despite these and other successes, there is still much toaccomplish to ulll New Havens potential. Facilitatingcontinued progressive urban redevelopment throughoutDowntown will enhance the quality o lie oering andoverall economic health o the City and region. o that end,Downtown Crossing Phase 2 will unlock the developmentpotential o the ormer Coliseum Site in Downtown NewHaven, adjacent to Route 34 and enable $300 million inprivate investment.

LiveWorkLearnPlay Inc. (LWLP), master developer o theColiseum Site, sees the potential and incentive to developthe property as a project o regional signicance as a centraland ully integrated mixed-use urban node and activatedregional hub positioned to positively impact and support

the Citys and States broad range o economic, community,planning, job-creation, and redevelopment priorities. Inshort increasing the economic productivity o the land: maximizes the value o the site and allows $300 million

private investment on the site

enhances the value o vacant parcels on other side oMLK Boulevard by laying paths to an at-grade crossingand enhancing the State Street connection

anticipated 2,000 jobs during construction and 1,400-1,900 permanent jobs

enables this development in an economically distressedarea

enhances development potential o land near the ourthlargest hospital in the country and one o the bestresearch universities in the world

enhances development potential o land proximate toConnecticuts largest rail hub, one o the busiest Amtraklines in the country and the terminus or the busiest railline (Metro North New Haven Line) in the country

creates jobs in area particularly accessible to low-incomeand disadvantaged workers due to bus and rail networksin close proximity

Not only will the project create jobs, many o theopportunities are available to small and disadvantagedbusinesses. Te City has small and WMBE hiringrequirements or City construction projects and whichLWLP has agreed to ollow when building on the Coliseum

Downtown Crossing Route 34 Parcels


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site. LWLP also has a leasing and casting strategy aimed atsmall businesses and local entrepreneurs. Tis is core to theirdevelopment plan and is consistent with Ninth Squaresmicro economy.

So the goal o urban vitality and economic viability canbe approached byutilizing portions o the right-o-way,rom removing a major physical and visual barrier, to createdevelopment sites or mixed-use opportunities that willpotentially improve the economy, increase tax revenues, andcreate new jobs. Te transormation o Route 34 East romhighway stubs and ramps into street-scale urban boulevardsand new land parcels will connect the Downtown businessand government centers to Union Station and the activeMedical District. Tis will help balance the 40% o the

Citys land that is tax exempt due to the high concentrationo institutional, education and park uses. DowntownCrossing will signicantly increase the tax base and revenuesthat can support other economic development activities.Te proposed changes would transorm the area and wouldincrease residential/retail and oce space which, in turn,would spur urther private sector investment in the area.

3. LivabilityLivability has nally become a common place term

Americans are more aware than ever that they have manyquality o lie choices instead o simply ollowing the typicalpath. Livability also needs to be considered beyond theboundaries o one project to understand the city-wide andeven regional implications.

Te ollowing section uses the Sustainable CommunitiesPrinciples to organize the description o project details andits larger infuences.

Provide more transportation choices.Route 34 as conceived in the 1960s was about movingvehicles at highway speeds into parking garages. DowntownCrossing is about urban streets, transportation alternatives

and accessibility. Phase 1 removes the highways and changesthe rontage roads into boulevards Complete Streets withbicycle lanes, sidewalks, and signaled pedestrian crossings.Te long-term vision o terminating Route 34 at a 4-way,at-grade intersection with Orange Street will create anappropriate sense o arrival to New Haven, ensuring thatthe Downtown urban abric truly begins at Orange Street.Tis also establishes New Haven as a place or all modeso transportation,and sets the conditions or developmentcommensurate with the importance o the intersection as the

Citys ront door.

Phase 2 o Downtown Crossing increases mobility andprovides accessibility to a greater population by enhancingthe connection between Downtown, the Hill and UnionStation and begins the work o improving this connectioneven more. Te ormer Coliseum site sits at the corner oOrange Street and MLK Boulevard and its redevelopmentis essential or achieving the goals o Downtown Crossing.Te ocus o Phase 2 is this intersection and the planned

improvements are a signicant rst step that sets the stage ora uture at grade crossing o Orange Street, and improves thephysical conditions surrounding the Coliseum site, allowingthe developer to commence its rst phases o development.New Haven has two train stations- the Union Station(AMRAK, Metro-North, and Shoreline East) and theState Street Station (Metro-North and Shoreline East) whichmakes the City a central transit point between New York,Harord/Springeld and New London. Te Union Stationarea is the regional transportation hub serving over 4 million


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passengers per year.Downtown Crossing, within a mile walk, is an extremelyimportant transit-oriented redevelopment opportunity orthe City as it provides new residential and commercial spacein close proximity to these two train stations with multiple

local and regional rail services.

New Haven already the has highest percent o bike and walkcommuters in New England and those numbers are likelyto increase. Te Orange and State Street connections allowthose unable to own a vehicle to have many commuting andtravel options and in many cities, not owning a car andstill having complete mobility is a source o pride. A push tomore transit-oriented and a balanced mix o uses will makeNew Haven more accessible and economically competitive.

Te bike improvements connect regional recreational systemsto a jobs center, creating a true regional bike commutinginrastructure.

Promote equitable, aordable housing.ransportation costs play a key role in aordability, andimproved access to transit is vital or New Havens low-income population. Approximately 40% percent o NewHaven residents and 70% o low income residents live morethan one mile rom the Citys two rail stations. Although

parts o New Haven are served by public buses and shuttleservices, most neighborhoods do not have a direct busconnection to either o New Havens train stations.

New Haven is currently a tight market with one o the lowestapartment vacancy rates in the United States, recently hoveringbetween 1%- 3%, indicating unullled demand or qualityhousing, particularly in the Downtown core. New Haven andthis project will increase the housing supply and add variety otypes and sizes. In addition, aordable housing will be included

in any development on City or State owned land.Te Coliseum site development vision includes 524 unitso rental residential above at-grade retail. Te residentialprogram will have a mix o unit sizes and types, and willintegrate some aordable and/or workorce housing,

although the specics o these latter details have yet to beestablished. Initial residential product will be rental, however,there may be potential individual housing ownership

opportunities in a later phase o the development.Given the prime location o proximity to Union Stationand regionally connected bicycle acilities, the housing units

will have easy access to multiple modes o transit and allowvehicle ownership to be optional rather than mandatory.Without the expense o purchasing and maintaining a car,the new residents will have increased options on the size andtype o housing they choose.

Enhance economic competitiveness.Downtown Crossing is central to the employment base oNew Haven. o the northwest o the project is the Hill-to-Downtown Planning Initiative (or Medical District),

LWLP neighborhood at street level with residential bldgs


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anchored by Yale-New Haven Hospital and Yale MedicalSchool, which currently holds about 15,700 jobs, anddirectly north is the established Central Business Districto Downtown New Haven and Yale University withapproximately 20,000 jobs combined.

As shown by Downtown Crossing Phase 1, there is renewedinterest by the private sector to locate close to the Yale New Haven Hospital, the Yale School o Medicine and theiraliated organizations. At ull build out o the DowntownCrossing master plan, the our development parcels areexpected to generate more than 2,000 new jobs and $3.775million in net tax revenues [Source: Downtown Crossing,2007].

Educational opportunities in the vicinity o DowntownCrossing are extensive - there are more than 35,000 students,aculty and sta located at Yale University and GatewayCommunity College as well as 12,000 residents living andworking within close proximity. Yale Universitys Schoolo Medicine is immediately adjacent to the DowntownCrossing development parcels and the main campus is withinan easy walking distance. As these schools are located to takeadvantage o a symbiotic relationship with the hospital, thisarea also provides local residents plenty o access to world-

class healthcare acilities.

Tere is very little developable land remaining in New Havenas the City is almost ully built out only approximately 4%let. Tere is even less land available in close proximity tomajor economic drivers and close to transit hubs.Unlockingthe land o Downtown Crossing and its adjacent parcelsurthers ability or these drivers to grow and urther NewHaven as a world class center or healthcare, bio-medicalresearch and lie sciences.

Support existing communities.In a historic City such a New Haven, there are limited areaswhere the City can grow. Initiatives to promote connectionsand planned density in areas, like the Hill-to-Downtownarea and Downtown Crossing that have the most available

land or development, are important or economic growth.Te City needs to encourage development to remaincompetitive, attract new jobs, and increase the tax base toprovide necessary City services or the current residents whilesteering development to the right locations to protect thelook and eel o the existing neighborhoods.

All inll and redevelopment projects in the City re-use orrecycle land and this project is no dierent. DowntownCrossing includes proposed mixed-use development on

the ormer Coliseum site which will be supportive o theexisting Downtown residential neighborhoods rather thancompeting. Downtown Crossing is a plan supported bya myriad o partners and, thereore, also has technicalexpertise and advice ranging rom neighborhood visioningto economic easibility. With the help o planning tools suchas master plans and zoning code revisions, along good policyrecommendations or resilience and sustainability, the projectwill enable denser developments, thus preventing sprawl.

Coordinate and leverage ederal policies and investment.Since the adoption o the states smart growth policy, severaltransit-oriented, mixed-income, and mixed-use developmentprojects have been unded and the City has been able toleverage the ederal investments o Phase 1 (under IGER II)to spur public-private partnerships on additional projects.

Federal policies and investments have not been limitedto the IGER Program. New Haven has also receivedtwo Sustainable Communities Grants or eorts in the


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area between Union Station and Downtown Crossing: a$185,000 HUD Regional Planning Grant and a $1 million

HUD Challenge Grant o $1 million, as well as a $390,000Connecticut OD Pilot Grant. Tere is also ongoing Federalinvestment in the New Haven - Hartord - SpringeldLine, which is expected to open in 2016, and signicantinvestment (National Institutes o Health unding orexample) into Yale New Haven Hospital and the Yale Schoolo Medicine.

By partnering with review agencies and private developers,the City o New Haven has successully increased the

opportunities or growth. Embracing the SustainableCommunities Principles has allowed goals to be met housing balance, multi-modal accessibility, and sustainablepractices.

For example: the Hill-to-Downtown Initiative is likely toinclude Live Where You Work type programs to encourageemployees to invest in housing near jobs at the hospital orDowntown; the Alliance or Biking and Walking estimates

that there are $11.80 o benets or every $1 invested inbiking and walking emphasizing the importance o alternatemodes; and, reducing the load on the stormwater dischargesystem by capturing and treating heavy storm runo beoreit enters the system

Downtown Crossing is built on partnership and cooperationbetween agencies. As Phase 1 is now under construction, itis time or Phase 2 o Downtown Crossing - continuing thecommitment to a previously unded project.

Value communities and neighborhoods.Te project site is between an increasingly vibrant centralbusiness district and the Hill neighborhood, one o manyneighborhoods severely impacted by urban renewal activities

in the 1960s and 1970s. One o the most signicant changesto any center City at the time was the demolition o theOak Street section o the Hill in order to build Route 34.Over 881 households and 350 businesses were cleared inorder to build the highway. Te resulting loss o populationand commercial activity, coupled with redevelopment-eraconcentrations o new aordable housing have contributedin part to neighborhood distress. oday, there are over 150vacant structures in the neighborhood. 23% o all vacantstructures in the City are located in the Hill neighborhood

alone (City o New Haven, 2011). Likewise, the totalnumber o housing units in the Hill decreased by 175 since2000 (US Census, 2010) even though demand or rentalhousing is increasing Citywide.

Designated as a Federal Empowerment Zone and a StateEnterprise Zone, the Hill can once again become a thrivingneighborhood and with residents better connected to theemployment opportunities within Downtown Crossing. Teproject area and its surroundings are becoming more

Phase 1 - 100 College Street Development


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z

dense and walkable neighborhoods that are healthy and saeor young people and seniors to move into the City onceagain. While retaining and restoring the historic natureand character o the Hill neighborhood, the new parcelsin the Route 34 right-o-way, along with some prime spotsDowntown like the old Coliseum site, can be developed orpeople to live near the center o activity without relying oncars.

4. SustainabilityFrom an urban design perspective the most environmentallysound and economically sustainable community is compact,connected, and complete.As an historic City, New Haven is compact. Te originalplan was nine blocks and there are natural eatures that haveconstrained the area o Downtown however, due to Route34, it is not cohesive. As Downtown Crossing restores theurban abric, greater development intensity can be achieved

to create a community with land use patterns that reducesenergy consumption, generates ewer vehicle miles traveled,and cuts greenhouse gases.

As a compact area, it should be readily walkable but requires

improvements o pedestrian acilities thereby reducingreliance on single-occupant auto use and reducing energyconsumption and improving air quality. Downtown Crossingwill provide improved connections to the existing street grid,and identication o and enhancements to alternative routesto optimize the unctionality o the existing inrastructure.A good mix o uses makes a community complete andDowntown New Haven is already airly well-rounded,with employment, commercial, and education, but theimprovement o the existing neighborhoods and potential

or additional Downtown residents will increase the qualityo lie or all in the area.Te City may be able to providedeveloper incentives or new construction within theDowntown Crossing master plan, including tax credits andregulatory reorms, to encourage development that reducesenergy consumption and lowers greenhouse gas emissions.

Downtown Crossing also goes beyond Smart Growth toincorporate sustainability concepts throughout and begin toaddress climate change by both adapting to it and mitigating

it. Te Master Plan improves the ability to identiy areasprone to greater risk rom climate change and restrictdevelopment in those areas, in the individual phases and theull build-out scenario. For example, the Route 34 corridoris susceptible to storm surge and, due to its sunken location,can provide stormwater mitigations or a larger area.

Route 34 Historical Photos

1950s 1970s


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Underground Detention SystemTe graphic above, shows a system built under SouthFrontage Road rom College Street to South OrangeStreet. Te system would store 252,000 c o water. Te

underground storage area would be connected to themain drainage truck line. Pretreatment o the stormwaterbeore it enters the drainage system will be installed, ieasible.

Brewery Street Detention AreaTis area will intercept some o the drainage on Route34 that is conveyed through the 91/95 interchange areadrainage system and will lessen the load on that systemas well as providing primary stormwater treatment. Tisarea would not be built solely as a detention area butwould be designed as a water eature that will create anamenity or the area.

5. SafetyWalkable and bike-riendly cities have been shown tobe more socially inclusive, economically prosperous,environmentally riendly, and saer or all road users.Increasing the rate o cycling, in particular, has been shown

in other cities to result in major saety benets or other userso streets. Te benets o walking include increased publichealth, greater neighborhood saety, and support or locally-owned businesses. Unemployment, vacant storeronts, thehigh costs o vehicle-related pollution and noise, concerns

about public saety and childhood obesity rates withinsections o the City suggest that making streets riendlier towalking, biking, and transit use should be at the top o thepriority list.

Saety improvements, such as improved pedestrian andbicyclist acilities, and trac calming measures thatslow trac on urban streets can be completed withoutrestricting access or necessarily reducing capacity. Tesemay include bulb-outs or neck-downs at on-street parallel

parking, and raised or textured crosswalks, along with othereatures included in the Citys Complete Streets policy. It isanticipated that Downtown Crossing will reduce the numbero accidents by urther reducing high speed trac patternsand reconguring dicult merge areas and intersections.

S FRONTAGE ROAD

CATCH BASIN STRUCTURAL BACKFILL

TOPSOIL

MODULAR STORAGE UNITS GEOTEXTILE FABRIC

SUBGRADE

ROUTE 34


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6. Project ReadinessTechnical FeasibilityDesign o the ve project elements are ongoing and beingprepared in close coordination with LiveWorkLearnPlay Inc.,the Developer o the Coliseum site so that the two projectsare seamlessly connected. Design documents were assembledor the preparation o cost estimates as provided in AppendixA; Financial Feasibility. Te City has adopted standarddesign criteria or the Downtown Crossing project, and havemet all CDO and FHWA requirements in the design oPhase 2 improvements. A summary o the design documentsare provided in the ollowing images.

Financial FeasibilityA total o $12.5 million is required to complete theinrastructure or the second phase improvements. Terequested IGER V Grant unding o $10.0 million ismatched by a $2.5 million (20.0%) non-ederal localcontribution as shown in more detail in Section 3. Inaddition, the project demonstrates a substantial positivebenet/cost ratio, as described in the Benet-Cost Analysis(Part B o Section 6 Appendix) and detailed project budgetsare included in Part A o Section 6 Appendix.

Bike lane connection to regional bike system at Water Street


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Figure 4: Intersection o Orange Street at MLK Boulevard


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B. InnovationInnovation and economic growth are increasing a result otechnology transers rom world class institutions o highereducation and research, such as Yale-New Haven Hospital andYale University. Te proximity o these institutions to Union

Station, Downtown and the Medical District have made NewHaven a globally signicant center or research and development,entrepreneurship, and lie science company starts.

Yale New Haven HospitalYale-New Haven Hospital includes Smilow Cancer Hospital atYale-New Haven, Yale-New Haven Childrens Hospital and Yale-New Haven Psychiatric Hospital. ogether these institutionsare the ourth largest hospital in the country with 1,541 bedsand 12,000 employees, and are nationally ranked in 12 o 16

specialties by US News & World Reports; op 10 nationally indiabetes (8), endocrinology (8), geriatrics (10) and psychiatry(10). Smilow Cancer Center is also 1 o only 41 comprehensiveNational Cancer Center Institute acilities in the nation.

Smilow Cancer HospitalIn 2009, Yale-New Haven Hospital completed constructionon its new Smilow Cancer Hospital, which was ully occupiedby April 2010. Te acility is one o just 41 designated cancercenters recognized by the National Cancer Institute, and is

transorming the City and its medical district into a destinationor researchers, medical proessionals and patients rom aroundthe nation. Smilow Hospital is a nationally renowned cancercenter and represents New Havens emergence as a major centerin American medicine and health care.

Yale UniversityYale University has a truly global reach and includes 2,239international scholars and 2,135 international students, all owhom contribute to the basic economy. As a basic industry, Yales

ability to orm partnerships across the globe creates signicantacademic and economic opportunities. President Richard Levinhas positioned the university to orm longstanding partnershipsin China, with over 60 aculty members participating in Yale-China programs, and by establishing Yale-NUS Collegethe

rst liberal arts college in Singapore.

Yale University is ranked #3 in the nation by US News & WorldReports and is the #14 recipient o NIH Grants in the country.Yale has undertaken large scale collaboration with industry suchas Gilead Lie Sciences and Alexion Pharmaceuticals. Alexion hasmade a rm commitment as the major tenant in the 100 CollegeStreet building, which was enabled by the Phase 1 DowntownCrossing project.

Yale is growing and has a $2 billion capital improvementprogram underway with two new residential colleges underconstruction which will add 800 students, and the New Schoolo Management opening in 2013 which will add 200 students tothe roughly 450 existing student base.

C. PartnershipTe City, State, MPO and their partners have been workingon the project plan since 2007 when the rst public meetingswere held. Ten, in 2008, Mayor John DeSteano, Jr. reached

out to neighborhoods across the City and presented DowntownCrossing in well-attended library room settings. In June, 2011,a major community meeting was held at the New HavenFree Public Library. Te session was well attended with livelydiscussion o elements o the design, pedestrian and bicycleaccessibility, and opportunities or sustainable development. Teteam, led by the City, is continuing to actively encourage publicand stakeholder involvement throughout implementation andconstruction to improve uture phases o the project.


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1. Jurisdictional & Stakeholder CollaborationAs evidenced by the many letters received, which areincluded in Section 6 Appendix and the ollowing weblink:http://downtowncrossingnewhaven.com/ino_center/.Te project is also supported by a wide range o parties in

business, government and community services.

2. Disciplinary IntegrationOne o the primary objectives o Downtown Crossing isto restore neighborhoods and improve livability withinDowntown New Haven. Te project is engaging citizens instakeholder interviews and public meetings, with more tobe scheduled as the project progresses. Non-transportationpublic agencies will be invited to participate in these sessionswhich will provide input to the design team.

D. Results o Beneft-Cost AnalysisTe overall project brings a signicant benet to New Havenand the nation as a whole. By continuing the progress madeby the rst phase o Downtown Crossing, the proposed projectwill continue to shit mode share away rom single occupant

vehicles, decreasing VM and promoting a more varied useo transportation modes. By removing an unsightly parkinglot and replacing it with residential and commercial structureswith high end amenities, and by reconnecting severed portionso the urban abric, the project will raise property values onearby parcels, as well as elevating New Havens overall urbanexperience. Ecological elements o the project will manage asignicant amount o storm water, reducing fooding in areascurrently inundated by major rain events. Tese benets,conservatively measured, signicantly outweigh the costs o


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construction and the slight increase in travel time or vehiclesusing the calmed roads. Te overall benet cost ratio or thepublic portion o the project is more than 2.0, even using aconservative real discount rate o 7 percent.

Reduced VMT Reduced Maintenance CostsAs a direct result rom driving ewer miles, vehicles are likely tohave lower expenditures related to maintenance. , Te reductiono over 1.6 million Vehicle Miles ravelled (VM), combinedwith an average maintenance expenditure o ve cents per miletranslates into more than $91,000 in annual savings in 2018,growing in subsequent years.

Property Damage AvoidedTe reduction in VM will also create ewer trac accidents

that aect personal property. At a value o 0.6 cents per VM,the reduction o over 1.6 million VM will save approximately$10,000 in annual savings in 2018, growing in subsequent years.

Reduced VMT Reduced Fuel Consumption ($)Using an average uel eciency o 37 miles per gallon, 1.6million less VM will end up saving about 46,000 gallons ogasoline. At an average cost o $3.65 a gallon, the annual savingsrom less uel consumption is approximately $165,000 in 2018,growing in subsequent years.

Agglomeration BeneftsPrivate residential and commercial developments as well aspublic inrastructure improvements are likely to increase overallagglomeration in the City o New Haven. Te addition o 1,000new jobs to the Downtown area will increase total earnings aswell as urban density. Te increase in wages will increase thelocal tax bases, as well as local spending. Tis benet is estimatedto be about $442,000 at the completion o the project, and willincrease over time with wage growth.

Reduced CongestionAnother benet rom reducing VM is the time savings romreduced congestion. With ewer cars on the road, overallcongestion throughout New Haven is likely to decrease savingother drivers time. Tis value is estimated to be about $0.23 per

VM. Te over 1.6 million ewer VM will save New Havenmotorists approximately $398,000 o time annually, growing insubsequent years.

Improved Experience Walking and BikingPublic development as a result o the project includes a newpedestrian underpass as well as new bicycle track lanes. Tesepublic amenities are likely to increase recreational walking andbiking. With an estimated value o $1.47 and $3.16 or walkingand biking, respectively, the addition o 100 new walkers and

50 new cyclists will create a benet o about $31,000 annually,growing in subsequent years.

Existence Value All Regional ResidentsTe project replaces an unsightly surace parking lot with activedevelopment, including an open air plaza with amenities. Tispublic space amenity reaches beyond the City limits o NewHaven City, and has value to both immediate neighborhoodresidents, and the residents that reside in New Haven County.Our estimate o the existence value o these amenities is $25.20

or New Haven City residents, and $1.30 or County residents,the total one time value o the existence o public space is about$900,000. We exclude residents that live within mile o theproject to avoid double counting with the property value increase.

Real Estate ValuesTe value o properties in the immediate area surrounding theColiseum site is likely to increase due to the aesthetic upgradeand amenities the new development provides. By taking theassessed value o all properties within a quarter mile o the new


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development and adjusting it to market value, a two percentincrease in property values will increase the value o nearbyproperties by approximately $9 million dollars. Tis increase willonly be one-time.

Non-Carbon Emissions ReductionsWith reduced VM come ewer car emissions. Excluding carbondioxide, emissions include sulur dioxide, carbon monoxide,nitrous oxide, ne particulate matter, and volatile organiccompounds. Based o cost estimates in the IGER V guide,New Haven will see a sizeable drop in total emissions, valued atapproximately $0.07 per VM. Annual savings rom reducedemissions is approximately $111,000 in 2018, growing insubsequent years.

Stormwater ManagementWith every heavy rainall, the City has to treat excess stormwater. New green inrastructure will collect approximately5.8 million gallons o excess storm water. Tis inrastructureincorporates a slow release mechanism back into the soil whichbypasses the need or treatment. Assuming a cost o 5 centsper gallon to treat, total savings rom water captured by greeninrastructure is estimated to be approximately $290,000annually.

Injuries Preventedrac accidents are responsible or injuries ranging in severitythat come at great costs. Reducing VM will decrease thenumber o trac accidents, and thereore reduce the totalnumber injuries. Based on probabilities and average cost perinjury type, the average cost o injury is approximately $0.17per VM. By reducing over 1.6 million VM, the total savingsin injuries prevented is about $283,000 in 2018, growing insubsequent years.

Lives SavedAlong with injuries and property damage, trac accidents cancause loss o lie. Reducing VM will decrease the number otrac accidents and the deaths that occur rom them. Based onthe probability and average cost o trac deaths, the average

benet o lives saved is approximately $0.10 per VM. Byreducing over 1.6 million VM, the total benet o lives saved isabout $170,000 in 2018, growing in subsequent years.

Flood MitigationFlooding causes property damage, lost wages, and generatesother expenses. With an estimated 2,000 households in thearea surrounding the Coliseum site, green inrastructure wouldmitigate the possible damage rom uture foods. Assuming thatone percent o households will be aected by foods, and that a

major food occurs every ten years, the annual value o mitigatedfoods is about $31,000 in 2018, growing in subsequent years.

Additional detail can be ound in the ull Benet-Cost Analysislocation as Part B o Section 6 Appendix. Te detailed excelworkbook with computations and assumptions can be ound atthe ollowing link: http://downtowncrossingnewhaven.com/ino_center/

Section 5 Approvals

A. National Environmental Policy ActDue to the developed nature o the project area, there arerelatively ew environmental approvals required. Based onthe project elements described in Section 1, the ollowingenvironmental permits and approvals are anticipated rom theC Department o Energy and Environmental Protection :

Construction Stormwater General Permit Flood Management Certication Coastal Consistency Review


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Te status o the NEPA documentation is provided in detail inAppendix C.

Te Route 34 project has been incorporated into the stateransportation Improvement Program (IP). Te IP is

the basis or the regional air quality analysis that CDOperorms to ensure conormity with the Clean Air Act. Teozone conormity determination perormed by CDO andpublished in Jan 2011 (http://www.ccrpa.org/notices/2011_AQ_Determination. pd), included the ollowing statement.Tis document was prepared to include the ollowing project inthe Air Quality Conormity Report or Fiscal Year 2010-2013,originally dated September 2009. Te inclusion o the ollowingproject necessitated the submission o this document: Project #0092-0614 Conversion o Route 34 rom Expressway to At-

Grade Boulevard between I-95 and Park Street.

Te above project was incorporated into the travel modelnetwork commencing in model year 2015 orward. Te highwaynetworks were rebuilt and model years were rerun, along withaccompanying VM and Mobile 6.2 emissions model. Teresults o these runs show a decrease in emissions in the aectedarea and thereore the transportation program and plan continueto conorm to the State Implementation Plan (SIP).

B. LegislativeTe ollowing legislative approvals have been obtained or thisproject:

1. FFY 2010-2013 ransportation Improvement Plan. TeSouth Central Regional Council o Governments approvedthis project and incorporated as part o Amendment #8 onJuly 28, 2010. Te MPO reerence # is SCRCOG #2010-A8-6.

2. Conveyance Act. Te Connecticut State Legislatureauthorized conveyance o the surplus right-o-way adjacentto the Route 34 corridor as necessary or the improvementsto MLK Boulevard and South Frontage Road as part oconveyance bill #66951 in June 2010.

C. State and Local PlanningTe project is consistent with state, regional, and local plans.Phase wo is an integral phase o the Downtown Crossingsproject, which in conjunction with the Route 34 redevelopmentwill serve as key multi-use transportation corridor andcomponent o the City o New Havens downtown revitalizationinitiatives. Phase 2, and the overall Downtown Crossing alongRoute 34, are addressed in the ollowing state, regional, and localplanning documents:

City o New Haven Comprehensive Plan, 2003 Te Future o Route 34 Study, Clough Harbour, 2007 Downtown Crossing: A Proposal or the Revitalization o

Route 34 East, 2007 Comprehensive Economic Development Strategy, 2008 Plan o Conservation and Development, South Central

Region, South Central Regional Council o Governments(SCRCOG), 2009

Master ransportation Plan 2009-2016, ConnecticutDepartment o ransportation

ransportation Improvement Program, 2010 Connecticut on the Move: Strategic Long-Range

ransportation Plan (2009 2035) I-95 New Haven Harbor Crossing (NHHC) Corridor

Improvement Program, SCRCOG Congestion ManagementProcess Report, 2010

South Central Regional Long Range ransportation Plan(2011-2040)

Statewide ransportation Improvement Program (2012)

tiger v application for downtown crossing project

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