Opinion ID: 796834
Heading Depth: 2
Heading Rank: 3

Heading: The Transportation Element and the Ferry Law

Text: 7 The Town of East Hampton has been a premier summer resort for many years. The Town's summertime population has experienced substantial growth since 1970 and increases each year to four or five times the year-round population due to tourism and the presence of seasonal homes. Because travel through East Hampton occurs mainly by way of the Montauk Highway, traffic volumes on the highway during summers are currently at or near capacity. Moreover, traffic on other Town roads during the summer months is rising rapidly at an average rate of 8% per year. 8 In light of these burgeoning traffic problems, the Town Board of East Hampton (Town Board or the Board) became increasingly concerned with the resulting serious threat to public health and safety and to the economic vitality and general livability of the Town. In particular, the Board recognized that increased road congestion would be exacerbated by proposed changes to ferry service on the eastern end of Long Island occasioned by the presence of large casinos near New London, Connecticut and the technological developments in the speed and carrying capacities of ferries. 9 In 1995, the Board imposed a moratorium on the establishment of new ferry service until a comprehensive transportation plan could be completed and thereafter commissioned the first town-wide transportation study since 1966. Following two public hearings, the Board adopted the study as the Transportation Element of its Comprehensive Plan. The Board found that the study confirmed what Town residents already knew: summertime road traffic in East Hampton has become so heavy as to undermine the Town's rural atmosphere, create very inconvenient and even dangerous driving conditions on the Town's roads, and generally diminish the quality of life heretofore enjoyed by residents and visitors alike. Specifically, the Transportation Element revealed that [c]ongestion occurs along Route 27 . . . as through traffic competes for available highway capacity with traffic destined for business areas. Particularly in the Village of East Hampton, traffic is slowed when vehicles enter and exit on-street parking spaces, sometimes blocking through traffic for a significant period of time. Recognizing that there is minimal potential for the existing highway system to accommodate existing traffic, let alone future traffic generated by natural growth and new private developments, the Transportation Element concluded that a new ferry has the potential to cause a significant degradation in levels of service at roadway intersections providing access to a new terminal site. In many cases, these levels are already poor. As a result, it is recommended that this ferry service not be instituted. 10 In addition, the Transportation Element evaluated the potential environmental impact of increased traffic in the Town and recommended against the institution of the ferry service on that basis: 11 [A]ny potential traffic increases on the roadway network providing access to a new ferry terminal will directly impact the environment. This impact will include generation of additional vehicle pollutants and noise. This generation of additional air pollutants is of particular concern, due to the classification of the Nassau-Suffolk Region as a severe non-attainment area for ozone, and a moderate non-attainment area for carbon monoxide, as a result of the Federal Clean Air Act Amendments of 1990. . . . The extent of pollutants generated is directly related to average speeds of vehicles on any particular roadway. Any traffic increases on a roadway will lower the average speeds, usually . . . resulting in an increase in vehicle emissions. 12 More vehicular noise is generated by acceleration and deceleration than by travel at constant speeds. 13 The Board also considered studies showing that high-speed ferries create larger waves that pose safety concerns for boaters and swimmers and have high fuel consumption and air emissions. Finally, the Board recognized that the need for a special use permit even for conventional passenger ferries had become acute in light of findings that the site must have adequate parking and public restrooms available. 14 In 1997, following a series of public hearings during which Cross Sound submitted comments opposing the moratorium and the Board's proposed action to limit ferry access to its terminals, East Hampton adopted Local Law No. 40, termed the Ferry Law, to address the potential traffic problems posed by vehicle ferries operating between the Town and the Connecticut shore or . . . high-speed, high-volume passenger ferries transporting passengers to the large Connecticut casinos. The Ferry Law, which became effective December 29, 1997, provides, in relevant part: 15 A. Special Permit required. No person shall construct, commence to use, or substantially expand a passenger ferry terminal, nor commence any passenger ferry service, without having first obtained a special permit pursuant to Article V hereof which specifically authorizes the proposed use and approves the onshore terminal facility to be employed. 16 B. Vessel limitations. No ferry which has more than two thousand (2,000) installed horsepower and the capability of travel[]ing at a speed in excess of twenty (20) knots, nor any vehicle ferry of any description, shall dock at or otherwise make use of any passenger ferry terminal, or be allowed to dock at or make use of such facility, except in case of emergency. 17 These restrictions apply regardless of the origin, destination, or ownership of the ferries utilizing the Town's terminals. 18 The Ferry Law distinguishes between ferries and excursion boats. The law defines ferry to mean [a] vessel used in the business of carrying passengers between any port or place in the Town of East Hampton and any other port or place without the Town. Compare `excursion boat.' In contrast to a ferry, which picks up passengers at one point and drops them off at another, an excursion boat is defined as [a] vessel used on a commercial basis to take passengers to sea from any port or place within the Town of East Hampton, and which returns those passengers to the point of origin without an intervening stop at any port or other land not located in the Town. Excursion boats include boats used on a commercial basis for party-fishing trips . . . sight-seeing trips or tours . . ., a dinner cruise vessel, or a vessel employed on gambling trips outside the territorial waters of the State of New York. Compare `ferry.'