6-1 June 2021

Chapter 6: Transportation

6.1 INTRODUCTION 

New York City’s urban core supports 10 million daily commuters (prior to the COVID-19 public 

health emergency) and the City is home to more than 8 million residents and about 20 million 

residents in the larger metropolitan area. To sustain this level of density and economic activity, 

the region relies on its comprehensive network of mass transit, commuter rail, local and regional 

bus networks, and surface roads and highways. Growth in the urban core has been supported by 

looking for opportunities to jointly develop above existing transit and rail facilities, most notably in 

recent decades in the far west side of Manhattan where remnants of its lower density industrial 

history and supporting rail yards are now being reclaimed for mixed-use and transit-oriented 

development. 

This chapter describes the analysis of potential effects to transportation facilities and systems in 

the Study Area from the construction and operation of the Preferred Alternative. The transportation 

analysis in this chapter also includes the evaluation of the No Action Alternative.

The Preferred Alternative is a large-scale infrastructure and transportation project that is an 

important piece of the emerging infrastructure supporting the growth of the urban core of 

Manhattan. When complete, the Preferred Alternative would protect and enhance transportation 

infrastructure below-grade and allow new transit-oriented development to be built on the Project 

Site (see Chapter 2, “Purpose and Need,” and Chapter 3, “Alternatives,” for more details). 

As the Preferred Alternative would not introduce any new residents, workers, or visitors, no 

operational effects to transportation systems would result. However, the construction of the 

Preferred Alternative would have the potential for effects to transportation systems in the Study 

Area from workers and materials deliveries needed during construction. To identify potential worstcase effects, a Peak Construction year was analyzed. This assessment includes consideration of 

the estimated demand generated by construction workers travelling to and from the Project Site 

as well as construction truck trips. This demand could affect Study Area traffic, parking, public 

transit modes, passenger rail service and operations, bicycles, and pedestrian conditions. 

6.2 REGULATORY CONTEXT

The analysis followed 23 CFR Part 771 and relevant CEQ guidelines, as well as the methodology 

guidelines set forth in the CEQR Technical Manual (see Chapter 4, Section 300). FRA used, to 

the extent practicable, local guidance and methodologies in recognition of the unique 

characteristics of New York City. 

Given the unique setting and location of the project, and the size, density, and complexity of New 

York City, the robust and well-defined transportation screening process in the CEQR Technical 

Manual is of particular relevance for the analyses. The screening process first identifies if a project 

generates enough incremental change to transportation demand to warrant detailed analyses. The 

analysis methodology presented below provides a framework for this assessment.
June 2021 6-2 

6.3 ANALYSIS METHODOLOGY

The Study Area for the Preferred Alternative (described below in Section 6.4, Affected 

Environment) is characterized as having high vehicle, pedestrian, and transit volumes and it 

overlaps with other ongoing and forthcoming transportation and infrastructure projects, and public 

and private real estate development in the area as identified in Chapter 4, “Analysis Framework.” 

The evaluation for the Preferred Alternative is consistent with methodologies developed for the 

CEQR Technical Manual, and Chapter 3 in Appendix B provides a detailed summary of the 

methodology and criteria FRA used in this impact assessment.

6.3.1 TRANSPORTATION PLANNING FACTORS

The CEQR Technical Manual provides guidance on developing the key transportation planning 

factors that frames the impact assessment and supports determination on whether a detailed 

study is appropriate. This process begins with identifying the type and size of a project and its 

location in the City and applying planning factors that are the key elements of trip generation 

assumptions to estimate demand generated by any proposed project. This would include the total 

number of person trips expected to be generated, estimated by project type, land use, or other 

criteria. The trips are then distributed by anticipated mode of travel between auto and taxi, transit, 

and pedestrians (truck trips are estimated as well). The mode share is based on available recent 

census data of travel characteristics as well as completed traffic impact assessments in the 

general project area. For auto trips, a further refinement using this same data pool, is to estimate 

the average vehicle occupancy to estimate the actual number of vehicle trips. Finally, the mode 

share estimates are provided with a temporal distribution with trip arrival and departures estimate 

for peak travel periods. These transportation factors serve two important functions as established 

by the CEQR Technical Manual. 

First, they provide a basis to undertake the initial evaluation to determine if a traffic study is 

warranted. A preliminary trip generation (Level 1) and trip assignment (Level 2) threshold analysis 

determine if a project is likely to generate up to 50 vehicles at any one intersection during a peak 

hour. For pedestrians and transit, the threshold is 200 or more trips in a peak hour at a transit 

facility or on a pedestrian pathway (sidewalks and crosswalks). If these thresholds are not met, 

the CEQR Technical Manual guidance indicates that a detailed traffic analysis is not likely to be 

appropriate as the project increment is below a level that would be a meaningful change in local 

and regional traffic conditions. FRA considers trip increments that do not reach the threshold to 

be considered as a negligible adverse effect and if no trips are generated at all it would be 

considered to have no adverse effect.

Second, if a proposed project exceeds the Level 1 and Level 2 thresholds, then the transportation 

planning factors provide the incremental traffic demand with which to complete the detailed 

analyses. 

6.4 AFFECTED ENVIRONMENT

Appendix C-1 presents a summary overview of the affected environment for a transportation 

Study Area that includes the Project Site and surrounding transportation network that would serve 

the Project Site, consistent with study areas for the environmental analysis of similar projects in 

New York City. The Study Area extends outward to include routes for travel of construction 

workers, materials, and services, and captures the most likely area of increased traffic, parking, 

transit, and pedestrian demand that construction of the Preferred Alternative would generate 

Appendix C-1 includes a detailed description of baseline conditions in the transportation Study 

Area for the following transportation resource components:
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6-3 June 2021

6.4.1 INTERSECTION CAPACITY ANALYSIS 

The street network surrounding the Project Site provides vehicular access to and from the site 

within the Study Area and encompasses 38 intersections covering an area bounded by West 34th 

Street on the north, West 29th Street on the south, Twelfth Avenue on the west, and Sixth Avenue 

on the east (see Figure 6-1). A Synchro model network was developed for this network and 

baseline volumes established for the critical weekday AM, Midday, and PM peak periods. The 

Study Area focuses on locations where construction-related traffic from the Preferred Alternative 

would be anticipated to be most concentrated.

6.4.2 ON- AND OFF-STREET PARKING

Existing (baseline) parking conditions are based on field inventory of on-street parking regulations 

within the Study Area as well as capacity of immediately adjacent off-street public parking facilities 

most likely to be used by workers during construction of the Preferred Alternative. 

6.4.3 BICYCLE INFRASTRUCTURE 

The baseline bicycle conditions within the transportation Study Area include official bicycle lanes, 

primarily designated as protected bike lanes, but also includes some conventional and shared 

bike lanes. This resource area focuses on locations where construction of the Preferred Alternative 

and/or its associated construction-related traffic would be anticipated to be most concentrated or 

have the potential to affect bicycle lanes within the Study Area.

6.4.4 BUS AND SUBWAY TRANSIT SERVICES 

The Project Site can be accessed by any number of the dense network of public transit service in 

Manhattan. The existing baseline transit services within the transportation Study Area include 

those services providing access to the Project Site. These include MTA NYCT subway lines

(including the immediately adjacent 34th Street Hudson Yards station for the No. 7 train as well 

as the Eighth Avenue, Seventh Avenue and Sixth Avenue subways) as well MTA NYCT bus routes

most notably the crosstown 34th Street SBS service and along key north-south avenues. 

NJ TRANSIT and MTA LIRR commuter rail services operate to and from Penn Station, and the 

New York Waterways ferries operating from Pier 78 at West 39th Street, which provide additional 

transit service to the Project Site. 

6.4.5 PEDESTRIAN CONDITIONS ON SIDEWALKS AND CROSSWALKS 

NEAR THE PROJECT SITE

Likely pedestrian pathways to and from the site (most notably including pathways to nearby transit 

facilities) are incorporated into the baseline conditions within the transportation Study Area, 

including the assessment average pedestrian space on a sidewalk, corner, or crosswalk. 

6.4.6 AFFECTED ENVIRONMENT FUTURE CONDITIONS

The transportation resource baseline conditions were adjusted to represent Affected Environment 

Future Conditions to include all background development (private development occurring around 

the Project Site), within the Study Area, expected to be complete by the Peak Construction Year 

2023. To develop the Affected Environment Future Conditions traffic networks, the incremental 

vehicular and pedestrian increments from known development projects expected to be complete 

within the Study Area by the 2023 Peak Construction Condition, were added to baseline 

conditions. The four known developments include 3.27 million gross square feet of office space, 

275 apartments, 755 hotel rooms, 16,879 gross square feet of retail space, 49,748 gross square 

feet of community space, and 55 parking spaces. 
HUDSON RIVER

UNION 

SQUARE 

W. 48TH ST. 

W. 47TH ST. 

W. 46TH ST. 

W. 45TH ST. 

W. 44TH ST. 

W. 43RD ST. 

W. 42ND ST. 

W. 41ST ST. 

W. 40TH ST. 

W. 39TH ST. 

W. 38TH ST. 

W. 36TH ST. 

W. 37TH ST. 

W. 35TH ST. 

W. 34TH ST. 

W. 33RD ST. 

W. 32ND ST. 

W. 31ST ST. 

W. 30TH ST. 

W. 29TH ST. 

W. 28TH ST. 

W. 27TH ST. 

W. 26TH ST. 

W. 25TH ST. 

W. 24TH ST. 

W. 23RD ST. 

TENTH AVE. 

NINTH AVE. 

ELEVENTH AVE. 

TWELFTH AVE. ROUTE 9A 

EIGHTH AVE.

SEVENTH AVE. 

SIXTH AVE. 

E. 23RD ST. 

FIFTH AVE. 

BROADWAY 

E. 42ND ST. 

E. 34TH ST. 

PARK AVE. PARK AVE SO. 

VANDERBILT AVE. 

MADISON AVE. 

W. 22ND ST. 

W. 21ST ST. 

W. 20TH ST. 

W. 19TH ST. 

W. 18TH ST. 

W. 17TH ST. 

W. 16TH ST. 

W. 15TH ST. 

W. 14TH ST. 

W. 13TH ST. 

HORATIO ST. 

JANE ST. 

LITTLE 12TH ST. HUDSON ST. 

76

72

66

64

62

61

60

59

82

78

79

83

84

86

88

CONVENTION 

CENTER 

EASTERN 

RAIL YARD 

USPS 

DSNY 

STARRETT 

LEHIGH 

QUILL 

BUS DEPOT 

PORT 

AUTHORITY 

BUS TERMINAL 

GRAND 

CENTRAL 

TERMINAL 

CON 

EDISON 

COMPLEX 

FFARLEY ARLEY 

BLDG 

PENN 

PLAZA 

MADISON 

SQUARE 

GARDEN/ 

PENN 

STATION 

TWO 

PENN 

PLAZA 

ONE 

PENN PLAZA 

MORGAN F MORGAN FACILITY 

MORGAN ANNEX MORGAN ANNEX 

N 

WESTERN 

RAIL YARD 

Development Site 

Study Intersections 

1.7.21

WESTERN RAIL YARD INFRASTRUCTURE PROJECT

76

81

83

84

86

88

Source: WSP USA 

Project Site

Traffc and Parking Study Area 

Figure 6-1 
June 2021 6-4 

In addition, NYCDOT is advancing some transportation improvements in the Study Area expected 

to be complete by the 2023 Peak Construction Condition analysis year. These include: a parkingprotected bicycle lane on the east curb of Ninth Avenue between West 31st Street and West 33rd 

Street; a mid-block crossing on Ninth Avenue between West 31st Street and West 33rd Street; an 

extension of the Seventh Avenue bicycle lane from West 30th Street north through the Study Area; 

a modification of the taxi stand at Penn Station to more effectively handle southbound taxi traffic; 

and a widening of the west sidewalk on Eighth Avenue between West 33rd Street and West 39th 

Street coupled with narrowing the associated roadway Corresponding signal timing/signal phasing 

modifications will be implemented along Eighth Avenue intersections mentioned above. Chapter 

4 provides more details about these improvements. 

There are no largescale infrastructure projects within, or that would affect the Study Area with 

expected completion dates before or in 2023.

6.5 ENVIRONMENTAL CONSEQUENCES

Environmental Consequences focus primarily on the results of the Level 1 and Level 2 Screening 

Analysis of the Peak Construction Year 2023.

1 As described in more detail below, the Preferred 

Alternative construction activities would likely generate a number of trips that screen-out indicating 

that no further analysis is needed.

1 The Level 1 and Level 2 Screening Analyses are based on original construction truck and worker estimates 

calculated prior to revisions to the updated schedule and means of the High Line underpinning provided by 

the Project Sponsor. The overall effects remain similar to those originally analyzed, although they are 

somewhat reduced, based on the updated number and size of trucks estimated. Therefore, the numbers 

used in this EIS are conservative.

6.5.1 NO ACTION ALTERNATIVE

Under the No Action Alternative, the Project Sponsor would not build the Preferred Alternative. 

The existing use of the rail yard and associated LIRR facilities, as well as their maintenance 

regimen would continue. Therefore, the No Action Alternative includes only those projects that are 

necessary to keep the Western Rail Yard and the associated LIRR facilities in service and provide 

continued maintenance. The No Action Alternative would not involve any construction, so there 

would be no construction-related effects to transportation resources. The No Action Alternative 

would not generate any additional traffic, pedestrians, or transit-riders; therefore, no adverse effect 

on transportation resources in the No Action Alternative is anticipated.

6.5.2 PREFERRED ALTERNATIVE 

Once operational, the Preferred Alternative would not generate additional traffic, parking, transit 

or pedestrian trips. Therefore, no further operational analysis of potential effects of the Preferred 

Alternative is necessary based on the screening thresholds established in the CEQR Technical 

Manual. 

However, because the Preferred Alternative would involve a lengthy construction period 

(estimated at approximately five years), FRA developed transportation trip-generation forecasts 

to estimate the likely changes in transportation demand resulting from peak construction activities. 

In addition, construction activity associated with the Preferred Alternative could require temporary 

closure of curb lanes, and temporary closure, reduction in width, or relocation of sidewalks along 

segments of the streets and avenues bordering the Project Site, which could affect transportation 

resources in the Study Area. 
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6-5 June 2021

6.5.2.1 LEVEL 1 SCREENING ASSESSMENT

Estimates for the peak quarter of construction of the Preferred Alternative, were based on 

construction information developed and provided by the Project Sponsor. These peak construction 

trip-generation forecasts, and the factors used to develop them, are described in detail in 

Appendix C-2. While construction impacts on transportation resources are temporary in nature, 

this demand estimate evaluates the overall need for, and extent of comprehensive transportation 

impact analyses based on a Level 1 Trip Generation and Level 2 Trip Assignment assessments. 

All relevant information developed, and the resulting Level 1 and Level 2 Screening Assessments 

are included in Appendix C-2. 

6.5.2.1.1 Traffic, Parking, Bicycles

For the peak construction quarter, there would be 227 construction workers on-site per day and 

89 trucks would arrive and depart the site. As presented in Appendix C-2, during the busiest 

hours of construction shift changes (6–7 AM and 3–4 PM), FRA estimated that the Preferred 

Alternative would generate well below 50 vehicular trips through any given intersection within the 

Study Area, the screening analysis threshold. 

The results of the Level 1 and Level 2 Level Screening Assessments indicate that this demand 

does not meet or exceed CEQR Technical Manual trip generation or trip assignment screening 

thresholds. Therefore, in accordance with CEQR Technical Manual guidance, a detailed 

transportation assessment of the Peak Construction Condition is not needed, and added traffic 

resulting from construction activities of the Preferred Alternative would have a negligible adverse 

effect on traffic, parking, and biking conditions.

6.5.2.1.2 Transit and Pedestrians

As presented in Appendix C-2, during the busiest hours of construction shift changes (6–7 AM 

and 3–4 PM), FRA estimated that the Preferred Alternative would generate well below 200 new 

trips on any given transit line or facility with about 64 to 86 subway trips (all lines and stations), 

about 18 to 24 bus trips (all routes), and 12 to 16 rail trips (all routes). Since all worker trips to and 

from the Project Site can be considered walk trips for the final pathway from a transit station, bus 

stop, rail station, parked car, or a walk-only trip, the maximum total number of worker trips in any 

given hour is also below 200 pedestrians, the screening analysis threshold. 

Based on the estimates, FRA was able to conclude that consistent with CEQR Technical Manual

guidance, the new trips generated during the construction period would not exceed the Level 1 

Screening analysis threshold. Therefore, no detailed assessment of transit and pedestrian 

conditions is included in the EIS, as the added travel demand resulting from construction activities 

of the Preferred Alternative would have a negligible adverse effect on transit and pedestrian 

conditions. In addition, construction activities would not adversely affect bus operations near the 

Project Site. 
June 2021 6-6 

6.6 AVOIDANCE, MINIMIZATION, AND MITIGATION 

MEASURES

As noted in Section 6.5 the Preferred Alternative does not generate a sufficient number of 

construction trips to warrant a detailed transportation analysis and there are no anticipated 

permanent adverse effects on transportation infrastructure; therefore, no permanent avoidance, 

minimization, and/or mitigation measures are required. Nonetheless, construction activity 

associated with the Preferred Alternative could require temporary closure of curb lanes, and 

temporary closure, reduction in width, or relocation of sidewalks along segments of the streets 

and avenues bordering the Project Site. As with any construction of a large-scale infrastructure 

project, implementation of an MPT plan is required as a Best Management Practice (BMP). As 

presented in detail in Chapter 22, “Mitigation Measures and Project Commitments,” these 

measures are the BMPs typically expected by NYCDOT in development and approval of an MPT 

plan, which is also a component of the CEPP required for construction of both Platform and 

subsequent Overbuild at the Project Site, specified in the RD.

The Project Sponsor would develop MPT plans for submission to NYCDOT for review and 

approval. Review of the plans and implementation of the best practices highlighted in the MPT 

would be coordinated with NYCDOT’s OCMC. Such MPT plans would provide diagrams of 

proposed temporary lane and sidewalk alterations, including the duration, and the width and length 

of affected segments, as well as safety signs and the locations of safety barriers and construction 

fencing. Provisions of the MPT plans may also include requirements for the stationing of flagmen 

and may limit the hours of the day and/or days of the week when changes can be implemented. 

After NYCDOT has approved the MPT plans, the Project Sponsor and its contractors would be 

responsible for maintaining the provisions of the plans. The MPT plan related activities outlined in 

Chapter 22 is consistent with those published in the RD for the Project Site as a result of the 2009 

SEQRA/CEQR FEIS for the Western Rail Yard and is already included in the CEPP. For additional 

information regarding MPT plans, refer to Chapter 3. 

6.6.1 MAINTENANCE AND PROTECTION OF TRAFFIC

Common MPT measures for a large-scale construction project in New York City would likely 

require the following:

• Temporary closure of curb lanes, and temporary closure, reduction in width, or relocation of 

sidewalks along segments of the streets and avenues bordering the Project Site. 

• Based on the preliminary construction logistics plan developed by the Project Sponsor, 

construction trucks such as dump trucks or concrete trucks are anticipated to enter the 

“construction area” via West 33rd Street and Eleventh Avenue throughout the duration of 

Platform construction, and via West 30th Street for the construction of the substation. 

• Pedestrian circulation adjacent to the Project Site would be temporarily closed throughout 

Platform construction on Eleventh Avenue and West 33rd Street. However, at no time would 

access to occupied buildings be closed, nor would access to the Western Rail Yard and other 

Caemmerer Rail Yard facilities be closed to LIRR personnel and equipment.2

2 The Project Site is not presently accessible to the public and is always secured, with access only granted 

to authorized personnel. This would also be the case during construction of the Preferred Alternative. 

 
Chapter 6: Transportation

6-7 June 2021

• No streets would be completely closed to vehicular traffic nor transit buses due to construction 

of the Preferred Alternative. However, the segment of West 33rd Street between Eleventh and 

Twelfth Avenues would be completely closed to non-emergency vehicles during the Preferred 

Alternative’s construction period because of the NYCEDC West 33rd Street Viaduct project’s 

construction. 

• The timing of the West 33rd Street reconstruction work would be coordinated with the 

schedule and construction of the Platform. 

• Nearby vehicle detour routes would include West 34th Street, West 30th Street, and West 

29th Street and none of the streets are likely to be disrupted by the detour, nor would other 

nearby projects during the construction period. 

• In areas where temporary sidewalk closure is required, the sidewalk would be relocated to the 

curb lane and a barrier could be erected to separate motor vehicle traffic from pedestrian 

traffic. Furthermore, 34th and 29th Streets would be available as alternative pedestrian routes 

to 33rd and 29th Streets, respectively. 

• In areas where access to bordering lots is not needed—along segments of the streets and 

avenues bordering the Project Site—the sidewalk and/or curb lane may be closed. In such 

instances, pedestrians would be routed to the opposite side of the street at the nearest 

crosswalk. 

• Sidewalk modification may include the construction of a protective shed over segments of 

sidewalk bordering construction sites. The width of any relocated or modified sidewalks would 

be at least five feet, as specified in the RD. 