1-1 February 2022

Chapter 1: Project Purpose and Need

1.1 Introduction

The New York State Department of Transportation (NYSDOT) is proposing to replace the existing 

rail bridge across the Hudson River between the Cities of Albany and Rensselaer. This bridge, 

known as the Livingston Avenue Bridge, is a critical link on the Empire Corridor passenger and 

freight rail route in New York State and in the state’s wider freight rail network, and is nearing the 

end of its serviceable life. For this proposed bridge replacement project (the Project), NYSDOT 

has assigned identifying Project Identification Number (PIN) 1935.49.

NYSDOT was selected to receive Fiscal Year 2010 grant funding for the Project under the High 

Speed Intercity Passenger Rail Program administered by the U.S. Department of Transportation’s

(USDOT) Federal Railroad Administration (FRA). Prior to issuing permits or approvals for a 

project, including approval of funding, Federal agencies must consider the environmental impacts

of their actions in accordance with the National Environmental Policy Act (NEPA). FRA and 

NYSDOT have prepared this Environmental Assessment (EA) to comply with the requirements of 

NEPA as well as the New York State Environmental Quality Review Act (SEQRA). FRA is the lead 

Federal agency for review under NEPA and NYSDOT is the lead state agency for review under 

SEQRA.

FRA and NYSDOT prepared this EA in accordance with the Council on Environmental Quality’s 

(CEQ) regulations implementing NEPA (40 CFR Parts 1500‐1508), FRA’s Procedures for 

Considering Environmental Impacts (64 FR 28545, [May 26, 1999] and 78 FR 2713 [January 14, 

2013]), and NYSDOT’s SEQRA regulations at 17 NYCRR Part 15. The EA also documents 

compliance with other applicable Federal, New York State, and local environmental laws and 

regulations, including Section 106 of the National Historic Preservation Act; the Conformity 

requirements of the Clean Air Act; the Clean Water Act; the Rivers and Harbors Act of 1899; 

Section 4(f) of the Department of Transportation Act of 1966 (Section 4(f)); the Endangered 

Species Act; Executive Order 11988 and USDOT Order 5650.2 on Floodplain Management; 

Executive Order 11990 on Protection of Wetlands; the Magnuson-Stevens Act related to Essential 

Fish Habitat; the Coastal Zone Management Act; and Executive Order 12898 on Environmental 

Justice. 

This chapter of the EA describes the Project’s NEPA and SEQRA classifications, Project setting, 

the Project purpose and need, and NYSDOT’s goals for the Project.

1.2 Environmental Classification

1.2.1 NEPA Classification

NYSDOT is receiving financial assistance for the Project from FRA and will require Federal 

regulatory approvals for construction activities within and over a navigable waterway of the United 

States from the U.S. Army Corps of Engineers (USACE) and U.S. Coast Guard (USCG). The 

Federal funding and Federal approvals will require compliance with NEPA and applicable Federal 

rules and regulations. Therefore, this EA has been prepared in compliance with NEPA. FRA is the 

lead Federal agency for this EA. 
Livingston Avenue Bridge EA PIN 1935.49

February 2022 1-2 

1.2.2 SEQRA Classification

NYSDOT, acting as lead state agency pursuant to SEQRA, commenced the SEQRA 

environmental review of the Livingston Avenue Bridge Project in 2010. NYSDOT has determined 

that the Project is a SEQRA Non-Type II Action in accordance with 17 NYCRR Part 15 – 

Procedures for Implementation of State Environmental Quality Review Act. SEQRA Non-Type II 

projects include actions for which the environmental impacts are not clearly established, indicating 

that the impacts should be evaluated under SEQRA. The Project is being evaluated in an EA 

because the extent of significance of its impacts is unknown.

1.3 Project Location and Setting

The Livingston Avenue Bridge is a rail bridge that spans the Hudson River between the City of 

Albany (Albany County) and City of Rensselaer (Rensselaer County) in New York State (see 

Figure 1-1 for the Project location). The Livingston Avenue Bridge was built for the New York 

Central Railroad in 1901-1903 by the American Bridge Company. The bridge uses the abutments 

and piers of a previous bridge at the location built in the 1860s.

The two-track Livingston Avenue Bridge is approximately 1,300 feet long from abutment to 

abutment, with nine piers. The tracks are approximately 12 feet apart, measured from the 

centerline of one track to the centerline of the other. The profile of the existing bridge is level, with 

a very slight grade of less than 1 percent. Two steel frame towers approximately 151.5 feet high 

above Mean High Water flank the swing span and support power cables. Figure 1-2 provides an 

elevation and profile of the bridge, and Figure 1-3 shows views of the bridge.

The Livingston Avenue Bridge spans a navigable portion of the Hudson River and has a vertical 

clearance above the water that varies from 25 to 30 feet, depending on the tide. The structure is 

a swing span movable bridge. The swing span provides a vertical clearance from Mean High 

Water to overhead catenary cables of approximately 135 feet. Although there are two channels 

when the bridge is in the open position, only the east channel has a fender system and is used for 

navigation. When the bridge is in the open position, the east channel provides 100 feet horizontal 

clearance due to the fender system while the west channel provides 110 feet. The regulated 

navigation channel maintained by USACE in this portion of the Hudson River is approximately 600 

feet wide, most of the width of the river. The bridge’s movable span is at the western edge of the 

navigation channel. In recent years, the bridge has opened as many as 474 times a year (in the 

peak year of 2005), with an average of 300 openings a year, generally during the boating season 

between April and November. 

CSX Transportation Inc. (CSX) owns the Livingston Avenue Bridge as part of its Hudson 

Subdivision, and the National Railroad Passenger Corporation (Amtrak) controls it as part of the

Empire Corridor route through a long-term lease with CSX.1 The bridge is at Milepost QC 143.1 

on the CSX Hudson Subdivision. Using its bridge identification system, NYSDOT has assigned 

the structure Bridge Identification Number (BIN) 7092890. The bridge and the CSX Hudson 

Subdivision became part of Amtrak’s and Conrail’s national passenger and freight networks, 

respectively, in the 1970s. CSX acquired the Livingston Avenue Bridge, much of the CSX Hudson 

Subdivision, and other connecting rail routes in 1999 when it acquired 43 percent of Conrail’s 

assets. Amtrak maintains and operates the bridge substructure, superstructure, swing 

mechanism, signal system, track, and ties by agreement with CSX. 

The bridge serves both passenger and freight rail: Amtrak uses the bridge for intercity passenger 

trains traveling on the Empire Corridor route, and CSX and Canadian Pacific (CP) use the bridge 

for freight rail service. 

1 Amtrak’s lease extends until 2035 with option to extend to 2060. 



Livingston Avenue Bridge EA PIN 1935.49

1-3 February 2022

The bridge is just north and west of the Albany-Rensselaer Amtrak Station on the Empire Corridor 

rail route. The Empire Corridor is the principal passenger and freight rail route through New York 

State, extending approximately 460 miles between New York City and the Canadian border at 

Niagara Falls (see Figure 1-4). USDOT designated the Empire Corridor as a High-Speed Intercity 

Passenger Rail (HSIPR) program corridor in 1998, based on its utility and its potential for future 

development. Amtrak routes that cross the bridge include the Empire Service (between New York 

City and Niagara Falls), Maple Leaf (between New York City and Toronto), Lake Shore Limited 

(between New York City and Chicago), Adirondack (between New York City and Montreal), and 

Ethan Allen Express (between New York City and Rutland, Vermont) routes. Amtrak has a rail 

yard for storage and maintenance of rail cars north of the Albany-Rensselaer Station along the 

Hudson River waterfront near the bridge, referred to in this EA as the Amtrak Maintenance Facility. 

The Livingston Avenue Bridge is also part of CSX’s Hudson Subdivision freight route, a 94-mile 

segment of the Empire Corridor between Poughkeepsie, NY, which is on the east side of the 

Hudson River about 70 miles south of Albany, and Scotia, NY, which is on the west side of the 

Hudson River near Schenectady (see Figure 1-5). 

Bridge approach tracks on the east side of the Hudson River are part of a “wye,” or a triangle of 

tracks (i.e., tracks that create a shape like the letter “Y”). The wye is formed by the intersection of 

the two Empire Corridor tracks curving toward the bridge from Albany-Rensselaer Station; a single 

freight track that runs north from Albany-Rensselaer Station past the bridge toward Troy, known 

as the Troy Industrial Track; and a single track curving south toward the bridge from the Troy 

Industrial Track (see Figure 1-6). The north and south legs of the wye ramp up from the Troy 

Industrial Track to meet the bridge, which is at a higher elevation.

On the west side of the river, the bridge abutment is on the west side of Quay Street, which runs 

along the waterfront. West of the abutment, the two-track west approach is on a berm that passes 

beneath a viaduct carrying eight lanes of Interstate 787 (I-787) and then passes across a series 

of five additional bridges over Water Street, Centre Street-Erie Boulevard, a CP freight line (and 

unbuilt location of Montgomery Street), Colonie Street and Broadway, and North Pearl Street. This 

stretch of track, including the bridges and the earthen berm between them, was historically 

referred to as the Albany Railroad Viaduct. Figure 1-6 illustrates the locations of the five bridges 

of the west approach.

1.4 Project Purpose

The purpose of the Project is to improve reliability and reduce passenger and freight train delays 

along this segment of the Empire Corridor; achieve (at a minimum) a long-term state-of-goodrepair for the bridge; eliminate existing bridge and track deficiencies; and maintain or improve 

navigation near the bridge. This will ensure that the Livingston Avenue Bridge meets modern 

passenger and freight rail capacity and load (weight) standards, maintains acceptable levels of 

safety, and supports the long-term utility and vitality of the Empire Corridor.

1.5 Project Need

The superstructure of the existing bridge was erected in 1901-1903 on a substructure that dates 

to the 1860s and is near the end of its serviceable life. The swing span frequently malfunctions, 

resulting in delays to passenger trains, freight trains, and boat traffic. In addition, the bridge does 

not meet current design standards related to load, speed, and vertical clearance.

The existing Livingston Avenue Bridge has been identified as a contributing factor to delays in the 

movement of freight and passengers throughout New York State. The Project is essential to 

implementing future rail plans and improving state-wide transport.



Livingston Avenue Bridge EA PIN 1935.49

February 2022 1-4 

1.5.1 Need to Address Structural Deficiencies and Substandard Conditions

The Livingston Avenue Bridge has nine spans on masonry piers. Over the Hudson River’s 

navigation channel, it includes four through-truss spans approximately 178 feet long and a swing 

span consisting of two 132-foot-long through-truss spans that pivot on a central pier to open and 

close the bridge for river traffic. Over the shallower water near the Rensselaer shoreline, the bridge 

has four through-girder spans approximately 76 feet long.2 Figure 1-2 illustrates the bridge 

elevation and plan.

Inspections conducted by NYSDOT in 2015 reveal that the bridge has substantial deterioration. 

The superstructure and substructure are in fair to poor condition, including some components with 

substantial corrosion and several piers that are in critical condition, including piers that have 

substantial undermining of the timber foundations that support the stone piers. The bridge was not 

designed for and does not meet modern seismic codes. 

The mechanical portions of the swing span are significantly worn and require near constant 

maintenance to remain operable. The electrical portions of the bridge are outdated and obsolete.

Substantial maintenance effort is required to keep the electrical components operable, and longterm reliability of the mechanical and electrical systems is a serious concern. The existing signal 

and bridge control system dates from the 1960s and is in generally poor condition. The swing span 

frequently malfunctions, resulting in delays to passenger trains, freight trains, and boat traffic. In 

recent years, Amtrak has kept a maintenance team on site to address issues with the swing span

which has reduced delays associated with malfunctions. Failure of any component of the existing 

system would cause delays to trains or, if the bridge was stuck or indicated as unable to open, to 

river traffic. Appendix A of this EA provides more specific information on the bridge condition.

The existing bridge also cannot support train operations at speeds consistent with the speeds on 

adjacent rail segments. The American Railway Engineering and Maintenance-of-Way Association 

(AREMA) has a rating system for bridges based on their “live load.” Live load relates to the weight 

of moving (i.e., live) trains, and accounts for the weight of the train and the dynamic effect of the 

vehicle as it moves. This is affected by the speed of the train and other factors. The AREMA rating 

system allows for comparison of bridge capacity across different types of trains. The ratings use 

the “Cooper E-Series,” and the current standard for railroad bridges is Cooper E-80, which can 

accommodate double-stack freight trains.

The bridge’s current condition will not accommodate the loads from modern, industry-standard 

passenger and freight cars and does not meet the Cooper E-80 standard. The Livingston Avenue 

Bridge was designed for a live load less than half of the value that would meet current design 

standards; therefore, passenger and freight trains operating over the bridge must comply with 

restrictions related to weight and speed. In addition to the obsolete design of the bridge, its current 

deteriorated state further limits train weight and speed on the crossing. As a result, the two-track 

bridge can be used only by one train at a time. The maximum authorized speed on the bridge is 

15 miles per hour (mph), which is lower than could be allowed because of speed limitations of its 

approach curves and tracks on adjacent rail segments. 

In addition, the existing turnout for the north leg of the wye on the east side of the Hudson River 

has a sharp curve that does not meet current AREMA standards and limits speeds on the north 

wye track to 15 mph. The wye tracks operate at a permanent slow condition because they are not 

signalized. Also, both the north leg and the east leg of the wye track operate at restricted speed 

2 A truss span is a bridge span in which the load is transferred to the piers by steel trusses, which are 

steel members connected to make adjoining triangles. A truss span with bracing members above the 

trackbed and trains is referred to as a through-truss. A girder span consists of longitudinal beams to 

support the bridge deck. A grid of “floor beams,” or beams that run across from one longitudinal beam to 

the other, and “stringers,” or beams that run from one floor beam to the next, support the bridge deck. 

The tracks and ballast (if any) are on top of the bridge deck. 
Livingston Avenue Bridge EA PIN 1935.49

1-5 February 2022

due to their poor condition, including areas of wide gauge. Figure 1-6 illustrates track alignments 

near the bridge.

The bridge also has non-standard vertical and horizontal clearances, which limit the types of 

carriages and freight that can traverse the span. The vertical clearance for trains traveling across 

the bridge is non-standard, at 18 feet 2 inches, compared to the 23-foot vertical clearance standard 

established by AREMA and used by Amtrak and CSX, and is not high enough to accommodate 

modern, double-stack freight trains. The bridge and two of the bridges at the west approach have 

horizontal clearances that are lower than AREMA guidelines and Amtrak standards. While the 

guidelines and standards call for a horizontal clearance that is a minimum of 9 feet, the Livingston 

Avenue Bridge has a minimum horizontal clearance of 7’-61⁄2” to centerline of track. 

In addition, the existing track geometry and curves throughout the Project limits are also 

substandard and do not meet Amtrak’s current Track Design Specification, Spec No. 63. While 

Amtrak standards call for minimum track centers (i.e., the distance between two tracks, measured 

from the centerline of one track to the centerline of the other) of 14 feet and CSX standards call 

for minimum track centers of 15 feet, the track spacing across the bridge and across the five 

additional viaducts west of the bridge is approximately 12 feet from centerline of track to centerline

of track. Curve lengths and radii (i.e., the tightness of the curves) also do not meet current Amtrak 

and CSX standards and therefore limit train speeds in the area.

The signals governing movements across the bridge are directly controlled by the operator in the 

control cabin on the bridge. The signal system is integrated with the adjacent signal system and 

the bridge operating system. While NYSDOT recently replaced the signal system throughout the 

corridor on both sides of the bridge as part of the Albany to Schenectady Double Track project 

and the Albany-Rensselaer Station 4th Track project, NYSDOT did not replace the signals and 

controls for the bridge itself. The signal system on the bridge needs replacement and 

modernization to bring it in compliance with a level of maintenance consistent with a modern signal 

system. Moreover, all of the equipment controlling the bridge operations is obsolete and should 

be replaced. While Amtrak maintains the system by replacing parts as they are available, finding 

parts for the obsolete system has become difficult. 

1.5.2 Need to Improve Capacity 

High-speed passenger rail service along the Empire Corridor is critical to New York State’s 

economic future and environmental sustainability. To improve intercity passenger rail service while 

strengthening the freight rail system, FRA and NYSDOT are jointly preparing a Tier 1 

Environmental Impact Statement (EIS) for HSIPR Service Development on the Empire Corridor. 

A Tier 1 Draft EIS was published in January 2014 that evaluates alternatives to introduce higher 

passenger train speeds on the Empire Corridor and improve reliability, travel times, service 

frequency, and passenger amenities.3

The Livingston Avenue Bridge is a restrictive bottleneck along the Empire Corridor that impedes 

future HSIPR plans. The current restrictions on bridge operations compromise the short- and longterm utility and vitality of New York’s passenger and freight rail service via the Empire Corridor. 

Improving the existing crossing is an essential component of developing a successful HSIPR 

corridor in New York State and providing ample connection to New York City. The Empire Corridor 

Tier 1 Draft EIS identifies the Livingston Avenue Bridge as a location with speed restrictions that 

reduce capacity on the Empire Corridor, and replacement of the bridge and a related increase in 

allowable train speed is part of all build alternatives evaluated in the Draft EIS. The New York 

State Rail Plan issued by NYSDOT in 2009 to guide New York State’s rail transportation 

investment strategies identifies the importance of the ongoing and improved operation of the 

3 Tier 1 Draft EIS for High Speed Rail Empire Corridor, January 2014. https://www.dot.ny.gov/empirecorridor/deis. 

Livingston Avenue Bridge EA PIN 1935.49

1-7 February 2022

High-speed passenger rail service along the Empire Corridor is critical to New York State’s 

economic future and environmental sustainability. NYSDOT is seeking to improve intercity 

passenger rail service on this designated high-speed corridor while strengthening the freight rail 

system. Improving the existing crossing is an essential component of developing a successful 

HSIPR corridor in New York State and providing ample connection to New York City.

1.5.3 Navigational Need

The Livingston Avenue Bridge is a swing span bridge over a navigable section of the Hudson 

River. It is operated by a bridge operator working in an operator’s house on the bridge above the 

center of the swing span. In recent years, the bridge has opened for ships an average of 300 times 

a year. Improving the reliability of the movable span is important for maintaining the navigation 

channel past Albany.

There is no record of damage to the bridge from barge or vessel strikes.

As part of the design for the Project, NYSDOT conducted a Navigation Study of the Hudson River 

at the existing Livingston Avenue Bridge. To conduct this study, NYSDOT collected information 

from boat operators, including marinas, commercial users, and others, regarding navigational 

needs near the existing bridge. The Navigation Study is included in Appendix D of this EA. 

General findings of the study include:

• Openings of the bridge are most frequently requested by sightseeing tour boats and by tug 

boats transporting construction materials and equipment.

• Commercial users of the bridge noted that requesting and obtaining a bridge opening has 

been unreliable due to technical difficulties or the operator being unavailable.

• Multiple users noted that passage through the bridge can be difficult due to the bridge’s limited 

horizontal clearance (of 100 feet), pier skew, and curvature of the river.

The Navigation Study concluded that increasing the horizontal clearance of the navigable channel 

beneath the bridge would make passage easier and faster for recreational and commercial users, 

and increasing the reliability of the bridge operations would be greatly beneficial to commercial 

users that require bridge openings.

1.6 Project Goals and Objectives

To evaluate the Project Alternatives developed as part of the environmental review process, 

NYSDOT established Project goals. The Project goals, and related objectives that illustrate how 

those goals can be achieved, are listed in Exhibit 1-2. 

1.7 Project Schedule and Contact Information

Following completion of environmental review in accordance with NEPA and SEQRA, final design 

will occur, permits can be issued, and right-of-way acquisition will occur. It is anticipated that the 

construction duration for the Project would be three years. Assuming funding is available when 

NEPA is complete, Project completion could occur in 2025.