vision plan for the 22nd street hudson bergen light rail station neighborhood (bayonne)

Vision Plan for the

22nd Street Hudson Bergen Light Rail Station Neighborhood

Bayonne, New Jersey

Prepared forThe City of Bayonne

Planning and Zoning Division

Prepared byAmerican Planning Association

New Jersey ChapterCommunity Planning Assistance Program

March 2014

The American Planning Association, New Jersey Chapter sponsors a Community Planning Assistance Program (CPAP) which connects communities in need of planning assistance with professionals willing to volunteer their time and talent.

The City of Bayonne submitted an application to CPAP requesting the development of a stakeholder driven, broad brush vision plan for the 22nd Street Hudson Bergen Light Rail Station Neighborhood. The intent is for this vision plan to provide general direction for the City’s upcoming area redevelopment plan.

Through the CPAP, several volunteers were identified and teamed together for the creation of this vision plan. The volunteer team included the following:

Colette Santasieri, PhD, Project ManagerIndradeep Chakrabarty, AICP

Thomas BehrensJohn Caulfield

Kimberly CennoScott Rowe, AICP, PP

Arnold Bloch, PhD, facilitator of the stakeholder meeting

American Planning Association: www.planning.orgAmerican Planning Association - New Jersey Chapter: www.njplanning.org

Table of Contents

1.0 Introduction to the Project 1

2.0 Transit Oriented Development 3

3.0 Overview of the Study Area 4

3.1 The City of Bayonne 4

3.2 The 22nd Street HBLRT Station Neighborhood Land Uses 7

3.3 Land Uses in the Immediate Vicinity of 22nd Street HBLRT Station 10

3.4 Study Area Constraints and Challenges 12

3.5 Planning Activities in the Study Area 16

3.5.1 Master Plan and Zoning 18

3.5.2 Bayonne Town Center Studies 21

3.5.3. Studies Pertaining to the HBLRT Stations 22

3.5.4. Redevelopment Plans in the Study Area 23

4.0 Vision for the 22nd Street HBLRT Station Neighborhood 25

Appendix A - Stakeholder Meeting 28

Vision Plan Bayonne 22nd Street HBLRT Station Neighborhood 1

1.0 Introduction

The purpose of this project was to develop a stakeholder driven, broad brush vision plan for the 22nd Street Hudson Bergen Light Rail Transit Station (HBLRT) Neighborhood - one that provides general direction for the City’s upcoming area redevelopment plan. The goal of the City of Bayonne municipal government is to encourage more transit oriented developments in this neighborhood. In an effort to garner a clear understanding of the project area, the CPAP volunteer team: reviewed previous plan-ning efforts in the neighborhood; observed existing land uses and conditions; and, assessed com-munity assets, constraints and opportunities. The CPAP volunteer team then met with a stakeholder group assembled by the City of Bayonne for the purposes of discussing their views on the neighbor-hood’s assets, constraints, challenges, and opportunities (see Appendix A for a summary of the stake-holder meeting, including the list of attendees). This vision plan is the culmination of those efforts.

For the purposes of this project, the 22nd Street HBLRT Station Neighborhood is defined as an area bordered on the north by 30th Street, on the south by 17th Street, on the west by Avenue C, and on the east by Avenue F. The 22nd Street HBLRT Station is located within this neighborhood between 21st and 22nd Streets, and Avenue E and Prospect Avenue. This study area is shown on Figure 1.

22nd Street HBLRT Station looking West

2 Vision Plan Bayonne 22nd Street HBLRT Station Neighborhood

Figure 1 - Study Area Base Map


2.0 Transit Oriented Development

The term Transit Oriented Development (TOD) has been defined in many scholarly works and by sev-eral organizations. The most basic and commonly applied TOD definition is a mixed use community extending for ¼ to ½ mile from a public transit station. Elements of this community include: residen-tial, retail, office, public and open space land uses; pedestrian friendly infrastructure and amenities; higher densities than surrounding areas; and compact design (i.e. narrower streets, smaller building setbacks). Transit Oriented Development represents a neighborhood or a collection of developments and public amenities that support public transit and in turn are supported by public transit.

While the 22nd Street HBLRT Station Neighborhood has many elements of a TOD neighborhood (e.g. mixed use, sidewalks, grid street layout), it is lacking some (e.g. higher density than the surrounding area). In addition, some transit oriented attributes can be improved upon. Chapter 3.4 provides an overview of the current challenges and constraints to achieving a more efficient TOD neighborhood around the 22nd Street HBLRT Station while Chapter 4.0 highlights opportunities to overcome those obstacles and facilitate future TOD there.

Broadway Corridor, Bayonne mixed uses and streetscape.


3.0 Overview of the Study Area

3.1 The City of BayonneThe City of Bayonne is located at the southern tip of Hudson County, New Jersey. According to the U.S. Census, its 2012 estimated population is 64,416. Bayonne consists of only 5.8 square miles, giving the City a density of 10,858.7 persons per square mile; this density is considerably greater in the City’s residential areas, as significant portions of the City’s periphery eastern third are low-density industrial and commercial space.

Bayonne is a peninsula surrounded by major regional waterways on three sides: Upper New York Bay to the east, Kill Van Kull to the south, and Newark Bay to the west. Bayonne is served by two major highways, the New Jersey Turnpike Hudson County Extension (Route 78) connecting the New Jersey Turnpike (Route 95) and points west to the Holland Tunnel into Manhattan, and Route 440, which carries traffic between the Turnpike Extension and Staten Island via the iconic Bayonne Bridge at the southern end of the City.

The City is connected to the national freight rail network through the Conrail Shared Assets Oper-ations Bayonne Industrial Track and to the regional transit network through the NJ Transit Hudson Bergen Light Rail Transit. The HBLRT provides access to Jersey City’s Gold Coast and other commu-nities within Hudson County. It also connects to the Port Authority Trans Hudson (PATH) system at Newport in Jersey City and the Hoboken Terminal, runs parallel to the freight line, and terminates at the 8th Street Station in Bayonne.

In Bayonne, the HBLRT runs parallel to the entire length of Avenue E, between New Jersey Turnpike Exit 14A and 8th Street. The 22nd Street HBLRT Station, opened in 2003, is located approximately 0.18 miles, or about 1 block, southeast of Broadway between Avenues E and F and 21st and 22nd Streets. Extension of the HBLRT was envisioned to spur significant redevelopment throughout the City, and significant planning and zoning steps were undertaken before its construction to facilitate transit oriented development around its stations. The most recent available data shows an average of 1,773 riders per day board the HBLRT at 22nd Street. It is anticipated that ridership at the 22nd Street Station will increase over time with the development of new and restored housing and commer-cial units in its vicinity. This may also generate a greater demand for more frequent service along the line promoting the HBLRT as a more viable transportation option for residents, commuters and visi-tors.

Figure 2 provides an aerial view of Bayonne and locations of its HBLRT stations with their respective 1/4 and 1/2 mile walking distances. As depicted on this map, a significant area of the City, including residential, commercial and institutional uses, are within walking distance to a HBLRT station. This is an indication that many of Bayonne’s residents, workforce and visitors are able to travel to, from and within the City without the use of a car alleviating traffic, parking demands and environmental impacts. Also apparent, is the need to connect the parts of the City which are not within walking distance to a HBLRT station with improved bus service or the installation of a proposed trolley network.


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Dwg. Title

Study Area MapDwg. Date

Drawn ByProject Title

CITY OF BAYONNEHUDSON COUNTY, NEW JERSEY

03/05/2014

TB

8th Street

22nd Street

East 34th Street

East 45th Street

Danforth Avenue

Richard Street

LegendBayonne Boundary

Subject Area

HBLR

! HBLR Station

1/4 Mile Walking Distance

1/2 Mile Walking Distance

1/4 Mile from 22nd St. Station

1/2 Mile from 22nd St. Station

Source 1: Municipal boundary from NJDEPSource 2: Orthophotography from NJGIN Warehouse, dated 2012Source 3: HBLR station locations from NJ Transit

0 0.6 1.2 1.8 2.40.3Miles

Vision Plan for the 22nd Street HBLRT Station Neighborhood

American Planning AssociationNew Jersey Chapter

Community Planning Assistance Program

Figure 2 - HBLRT and Stations in Bayonne


Due to its strategic location, Bayonne has traditionally served as a center for port-related commerce. Manufacturing, shipping, warehousing, and other heavy industries were the backbone of Bayonne’s economy for over 150 years. However, with the decline in manufacturing and related uses in the second half of the 20th century, Bayonne struggled to replace lost jobs and income. The City’s popu-lation fell from a high of 88,979 in 1930 to just over 63,000 in 2000. As population fled, and access to good-paying jobs decreased, Bayonne’s commercial core, centered on Broadway, continued to de-teriorate. While several businesses survived the post-industrial decline intact, the rejuvenation of the Central Business District continues to be a major focus of post-1980 policymaking.

Much of Bayonne’s built environment west of Route 440, consisting of residential and supportive retail, institutional, and office uses, has remained stable for decades. Areas east of Route 440 have redeveloped as areas of port-related industries have been replaced by retail and some new housing.

Bayonne’s street network generally follows a grid pattern, with numbered streets traversing the penin-sula from northwest to southeast, and avenues running southwest to northeast.


3.2 The 22nd Street HBLRT Station Neighborhood Land UsesAvenue C, two long blocks west of the 22nd Street HBLRT Station, serves as a secondary commer-cial and institutional corridor, with community-serving retail, Bayonne City Hall and Municipal Court, along with various other offices and facilities serving the central and western side of the City.

Bayonne’s main commercial corridor is Broadway, which runs much of the length of the City and is one long block west of the 22nd Street HBLRT Station. National, regional, and locally-owned retail establishments, restaurants, bars, bank branches, and other shopping and service offerings are locat-ed on Broadway. Bayonne has put considerable effort into revitalizing Broadway as a destination for shopping and entertainment, as it was throughout much of the early 20th century. Bayonne’s Central Business District, known as Bayonne Town Center, runs from 17th to 30th Streets. An ongoing chal-lenge to the revitalization of this area is the post-2000 proliferation of national chain and big box retail stores on former industrial sites in the City east of Route 440.

Looking down Broadway in Bayonne.


Avenue E, which parallels the HBLRT throughout the study area, is home to a mix of existing and dormant land uses, including warehousing, manufacturing, a gas station, several churches, several restaurants, a recreation center, a school, and a variety of one-, two-, and multifamily housing units.

Prospect Avenue, east of the HBLRT, has a similar land use pattern to Avenue E, with several more industrial/post-industrial uses and parking lots, and fewer single-family residences.

Prior to the opening of the HBLRT in the Bayonne Industrial Track corridor, the Avenue E and Pros-pect Avenue corridors featured a variety of industrial, automotive, and manufacturing uses that, while built to a low-rise scale consistent with the surrounding neighborhoods, were typical uses generally found adjacent to freight railroads. Prior to the late 1970s, the Bayonne Industrial Track was the main line of the Central Railroad of New Jersey (CNJ), which served communities throughout eastern Pennsylvania and northern New Jersey, crossed Newark Bay, and terminated at the CNJ’s Commu-nipaw Terminal, which is now Liberty State Park. Avenue E was a prime industrial location along the CNJ Main Line, with access to markets to the west and the port to the east. The elimination of through freight service along the CNJ Main Line, along with a general downsizing of manufacturing, greatly decreased the industrial utility of sites along Avenue E and Prospect Avenue.

The numbered streets between 17th and 30th Streets contain a mix of single-family to multifamily housing units, churches, and community-serving retail such as convenience stores and beauty sa-lons.

Building heights throughout the study area range from 2 to 7 stories, but the predominant building height is three stories.

Figure 3 illustrates the land uses within the study area.


Figure 3 - Land Use Map


3.3 Land Uses in the Immediate Vicinity of 22nd Street HBLRT Station

The focal point of the study area is the 22nd Street HBLRT Station. The Station exists on the north side of 21st Street where the HBLRT and Bayonne Industrial Track overpass 21st Street. The sta-tion's main entrance is on the west side of the tracks with a stairwell and elevator that open onto 21st Street.

While the HBLRT is a fast growing transit service, and ridership continues to grow at the 22nd Street Station, as well as the downstream 8th Street terminal, most land uses surrounding the station reflect the community's residential and recent industrial past. Other than the new multifamily building on the SE corner of Avenue E and 22nd Street, no transit oriented redevelopment has occurred in the imme-diate station area. The four properties immediately abutting the station's main entrance on 21st Street are decidedly not transit oriented, and are extremely underdeveloped for such proximity to a regional transit resource. Discussion of land uses and conditions on specific blocks and lots adjacent to the station is provided below:

Block 455, Parcels 1-3, at the northwest corner of Prospect Avenue and 21st Street, has been identified as being utilized by a meat processing facility. During the CPAP volunteer team’s August 2013 field examination, the team observed three truck trailers and an aboveground fuel storage tank. The Draft Comprehensive Redevelopment Study of the 22nd Street Station Area (2013) states that the property is a “non-conforming deleterious land use that creates detri-mental impacts on the health, safety, and welfare of the immediate area.”

Immediately across Prospect Avenue, on the northeast corner of Prospect Avenue and 21st Street, is Beacon Christian Academy. While community-serving facilities such as a school are critical to the success of any neighborhood, Beacon Christian Academy was constructed with security in mind. The facility, less than one block from the 22nd Street HBLRT Station, has no interaction with the street, with exterior fire doors and a blank brick wall at street level.

Block 459, Parcel 1, at the southwest corner of Prospect Avenue and 21st Street, is a surface parking lot for handicapped patrons of the 22nd Street HBLRT Station, plus kiss and ride drop-offs. Block 454, Lot 1, at the northeast corner of Avenue E and 21st Street, is an Exxon Gas Sta-tion. This parcel is the one nearest to the 22nd Street HBLRT Station entrance/exit but its use is not transit oriented. As a neighborhood destination, this use brings cars into and through the neighborhood, increasing vehicular/pedestrian conflicts and congestion.

Block 458, Lots 12-13, on the southeast corner of Avenue E and 21st Street, is utilized for parking and storage of emergency services vehicles. The site is an active New Jersey De-partment of Environmental Protection (NJDEP) Remediation case and could require complete demolition of existing buildings and environmental cleanup before it could be redeveloped for another use, preferably a transit oriented one.


Immediately across Avenue E from this site is the Constable Hook Senior Housing Complex. This facility is a community institution and serves a vital function for the City. In addition, the existing concentration of potentially transit-dependent seniors makes Constable Hook Senior Housing Complex a de facto transit oriented development. The former Maidenform plant, which is being redeveloped into a mixed use building that in-cludes residential, is located three blocks south of the 22nd Street HBLRT Station along Av-enue E. This redevelopment, along with the new multifamily building at 22nd and Avenue E, could stimulate interest and activity in the neighborhood and in the nearby Broadway business district.

Maidenform plant being renovated to accomodate residential lofts along Avenue E.


3.4 Study Area Constraints and Challenges The existing uses and conditions of the study area present several constraints and challenges for cre-ation of a more transit oriented neighborhood. Provided below are some of the identified constraints along with their challenges.

Automobile Use

1. Avenue E is a two-lane road with on-street parking, numerous residential curb cuts, and currently serves as a bypass of Broadway.

The challenge for the City is to create a mix of uses, a parking strategy, and a traffic plan that dis-courage additional automobile use through the study area on Avenue E. Education, enforcement strategies and perhaps design interventions are needed to reduce conflicts between residents exiting driveways and pedestrians/bicyclists/vehicles on Avenue E.

2. A car is needed to access major retail.

While much of New Jersey is auto-dependent, especially with the concentration of retail on major state highway corridors, a challenge for this study area is to reduce demand for cars, but at the same time create non-auto access for residents to retail destinations less than a mile away across Route 440, on Broadway and elsewhere in the City.

3. Parking is limited.

Any redevelopment that increases the city’s rentable space and number of residences is going to require a strategic parking plan that increases the number of public or shared parking spaces. Land is unavailable to provide suburban-level parking ratios or even dedicated parking for each new use. A major parking facility within the study area could prove useful, as it would open up current surface lots for redevelopment, and the inherent walkability of the community lends itself to a centralized parking facility. In addition, new residential development should incorporate below- or at-grade parking under residential units, where possible.

It is recognized that a parking deck in the Bayonne Town Center may pose a viable alternative to accomodate for existing and future parking demands of the City. While elevated parking structures are intended to promote convenience for drivers, they often become eyesores and physical obstacles in a community creating “dead” blocks and detracting from the pedestrian environment. Consider-ation should be given toward “wrapping” or surrounding any proposed elevated parking structure with multi-story buildings and/or aesthetic features for visual appeal. Lighting, sculptural details and green walls are alternatives to greatly enhance a parking facility’s exterior which is an opportunity to cre-ate an architectural attraction in the community. Solar canopies may also be installed above the top levels and/or on the appropriate façades of a parking deck to generate renewable energy to power the structure and possibly a surplus to supply the local power grid. Parking deck driveways should be accessed from side streets and alleyways where possible to avoid conflicts with main pedestrian corridors.


Current Land Uses

1. Proliferation of single-family and two-family residential units.

The predominance of single and two-family housing within the study area creates an environment that makes significant intensification to transit oriented densities a challenge. The relatively low density increases automobile demand, including the need to repeatedly enter and exit Avenue E into drive-ways; while the horizontal mix of uses creates scenarios where a prime redevelopment site may abut a single-family house. Residents of single-family and two-family housing have traditionally been the most vocal opponents of neighborhood change, redevelopment, and intensification of development. Community engagement, education, and participation are critical to the success of any redevelop-ment scheme in the neighborhood.

2. Several prime redevelopment sites are occupied by uses that are highly unlikely to desire re development in the near- or even mid-term.

• A gas station is located on the northeast corner of 21st Street and Avenue E. It sits next to the entrance of the 22nd Street HBLRT Station.

An auto-oriented use at the most prime TOD site in the 22nd Street HBLRT Station Neighborhood has huge negative impacts on creating the perception of an environment where walking and transit are the preferred modes of travel.

• Constable Hook Senior Living Facility is located on the southwest corner of 21st Street and Avenue E.

This facility is a community institution, and houses a significant number of mobility-impaired seniors who benefit from its proximity to the HBLRT and the CBD, and from aggregation (services are easier to provide to a concentration of the mobility-impaired). The building itself has infinite redevelopment potential; modernization of the physical structure could bring market-level rents given its proximity to the 22nd Street HBLRT Station. However, redevelopment of this facility may be fraught with emotion-al, and resultantly, political challenges.

• Beacon Christian Academy is located on the northeast corner of 21st Street and Prospect Avenue.

This facility is a newer, but just as important, community institution. Unfortunately, its location is a prime site for transit oriented redevelopment, sitting less than a block from the station. The challenge is not redevelopment, but rather working with the Academy to integrate the school into the broader community. The street wall resembles that of a fortress rather than a school, and security measures create an unwelcoming environment. While security of schoolchildren is of paramount importance, the school should look for creative ways to make its exterior more attractive. There are public art possibilities, and the students could be actively engaged not only in beautifying their school but also in the broader visioning effort of the neighborhood.


3. Rail Facilities

• Rail Yard

Immediately south of the 22nd Street HBLRT Station is a multi-track rail classification and storage yard, operated by Conrail Shared Assets Operations (CSAO). Class 1 railroads are historically reluc-tant to redevelop or relocate freight operations.

• Freight line

CSAO owns a freight line adjacent to the HBLRT. Air rights development, bridging over, or tunneling under the railroad to provide connectivity and community cohesion between the east and west side of the tracks will be extremely difficult given the historic reluctance of Class 1 railroads such as CSAO to permit incursions into their property and operations.

• Height of the rail bridges

The relatively low height of the rail bridges limits the ability to serve the study area efficiently by bus.

Infrastructure/Amenities

1. Small lot sizes.

Redevelopment is expensive, especially in situations where environmental remediation and/or struc-tured parking are required. Developers usually offset these costs by increasing leasable, rentable, or sellable square footage. The six and seven-story height limits restrict compensating for small lot sizes by building vertically. Site assembly is challenging because a profitable building may require several adjacent lots, some of which are currently occupied by a satisfied residential tenant or a successful business. The City may need to permit or incentivize air rights development, or assist property owners with relocation.

2. The length of the block between Broadway and Avenue E.

While the block between Broadway and Avenue E is walkable, for new residents, commuters, and visitors, the lack of interesting intermediate destinations may prove a disincentive to walking up to Broadway. To connect the CBD with the HBLRT, the City should consider targeting redevelopment, streetscape upgrades, way finding signage, and other efforts to 21st and 22nd Streets between the HBLRT and Broadway.

3. Lighting is at the vehicular scale.

The City should consider placement of pedestrian-scale lighting that provides for a safe and secure environment without causing unnecessary light pollution for adjacent residents.


4. Some sidewalks are in poor condition.

In a strong market, developers often pay for upgrades to pedestrian amenities. In a market that is trying to attract new investment, a city needs to demonstrate that such development is welcome by undertaking actions that enable and encourage such transit oriented devel-opment. Providing for and/or fixing sidewalks is one such action, especially those sidewalks that are abutting existing uses that will not be redeveloped (and especially between the 22nd Street HBLRT Station and Broadway).

5. Public space.

The study area features few public spaces, and the ones that exist could stand moderniza-tion. Unfortunately, the lack of developable space in general exacerbates the challenge of providing quality public space. The City could consider requiring public space for develop-ments over a certain size, but this in turn would be limited by the small lot sizes.

Retail 1. The size of retail properties limits retail options.

Many national retail chains have store footprint minimums and other requirements that pre-vent them from seriously considering older retail buildings such as those found within the study area. The City may need to incentivize rehabilitation of older retail buildings to ensure that their internal systems can support modern business operations, while looking for cre-ative ways to encourage businesses to reconsider their space minimums. 2. Over-retail of Broadway.

The Broadway retail strip, which runs nearly the entire length of Broadway from the 8th Street Station to the Jersey City border, is a challenge to fill with tenants, especially since there are millions of square feet of new retail, in modern facilities, east of Route 440. The challenge is for the City to ensure that the history of Broadway as the commercial core of 1950s Bayonne does not overwhelm the ability of this area to support contemporary retail needs.

Perception

1. External perception of the community.

While young professionals and empty-nesters may crave the walkability and transit-orien-tation Bayonne offers, they may have limited experience in a diverse community or in a city in general, and may be hesitant to relocate to an urban area, instead choosing to live in a more homogenous environment farther from their desired destinations. Education and strong marketing are imperative to shine a light on Bayonne’s many assets.


2. Internal perception of the community.

Many residents of Bayonne may have a specific perception of their community as a residential ham-let, or as a small town, or as a bedroom community, that would seem to be at odds with the potential of the City as a 24/7 vibrant urban environment. The challenge will be for the City to clearly communi-cate the benefits of redevelopment and to squash the negative perceptions of such.

3. Perception of negative traffic impacts and addition of schoolchildren.

Communities often oppose intensification of development for fears of increased traffic and additional school children. There is a perception that the addition of students to a public school system means a commensurate rise in property taxes. In addition, because previous generations are auto-dependent, there is a perception that each new resident will bring with them at least one car. Transit oriented developments, by definition, should not generate more traffic, because of the developments reduced available parking spaces and should not generate many school children because of the smaller hous-ing units. The challenge for the City will be to communicate the car-free lifestyle desired by those in the market for urban living and walkable, transit oriented residences and to ensure that the residential developments that are approved are truly transit oriented.

Costs

1. High costs of redevelopment.

The small lot sizes will require site assembly for most new developments, which is an added cost. Additionally, some redevelopment sites are brownfields and may require environmental remediation. These added costs must be factored into whether or not zoning should be adjusted to permit densi-ties that are more profitable. 2. City’s financial assistance.

Making this neighborhood attractive for redevelopment may require the City to make targeted capi-tal improvements (e.g. construction of parking structure, street furniture and lighting) and offer other incentives (e.g. grants, tax breaks) to facilitate redevelopment. The challenge for the City is to deter-mine if, given the City’s fiscal environment these actions are affordable.

3.5 Planning Activities in the Study AreaRedevelopment around the 22nd Street HBLRT Station and revitalization of the nearby Broadway Central Business District (CBD), branded as the Bayonne Town Center, are key elements of a vari-ety of plans and studies conducted between 2000 and 2013. The Bayonne Master Plan, the required vision for the City for the year 2020, is the cornerstone of the City’s planning documents, laying out the City’s goals and vision for its future. In addition to the current master plan and zoning ordinance, several planning documents were reviewed by the CPAP volunteer team and are summarized below. (Refer to Figure 4 for a geographic identification of some of the planning studies discussed below.)


Figure 4 - Locations of Various Planning Studies and Zones


3.5.1 Master Plan and Zoning

City of Bayonne Master PlanAugust 2000, prepared by Heyer, Gruel & Associates

The extension of the HBLRT to 22nd Street, and ultimately to its current 8th Street terminus, was eagerly anticipated when the City adopted its most recent Master Plan in the summer of 2000. The master plan articulated the City’s vision for the year 2020: “a thriving and vibrant community with a balance of land uses, a diversified and expanding economy, modern and well-maintained infrastruc-ture, extensive community facilities, and an outstanding quality of life.”

The plan focused on major redevelopment efforts along the Hudson River waterfront, the revitalization of the Broadway CBD, and the creation of a transit village along Avenue E. The plan encourages de-velopment of a diverse economic base while protecting the “established residential character.” Mixed use development is encouraged throughout the City, and specifically along the Avenue E corridor, where “higher density residential uses and commuter-oriented retail activity” should be targeted for “underutilized or transitional heavy commercial and industrial properties along Avenue E” to create a “mixed-use transit village.” The plan includes a variety of circulation, economic, and housing objectives that reinforce the desire to increase access to the HBLRT at the 22nd Street Station and connections between transit oriented development around the station and a revitalized Bayonne Town Center along Broadway. The plan identifies all of Avenue E as a Transit Development District, calling for transit oriented development throughout the corridor, including multi-family housing, small-scale retail, and the relocation of heavy commercial uses. The plan proposes an overlay zone, a density level of 65-75 units per acre, and a maximum recommended height of 6 stories or 65 feet, representing a “mid-rise character that accom-modates increased density without overwhelming adjacent residential neighborhoods.”

Bayonne Zoning OrdinanceCurrent to 2013

The Avenue E corridor is designated as the Transit Development District, or TDD Zone. (Refer to Figure 5 for zoning designations.) The TDD zone, adopted in 2001, allows single family dwellings, two-family dwellings, townhouses (not to exceed 75 dwellings/acre), apartments (not to exceed 150 dwellings/acre), professional and business offices, retail commercial, banks, major mixed use resi-dential development, and government offices. Please note that single-family homes are allowed in the TDD zone, which is unusual for a transit oriented zone. Building heights vary, but range up to 5 stories/55 feet for apartments, “major mixed use residential”, or “other uses.” Floor area ratios are capped at 2.5 for listed uses and 3 for “other uses.” Supplementing the TDD Zone is the Transit Development Overlay District, which is to be applied to a quarter-mile radius around each HBLRT station. The Transit Development Overlay (TDO) District, also adopted in 2001, allows townhouses not exceeding 90 dwellings/acre, apartments not exceeding 160 dwellings/acre, professional and business offices, retail commercial, banks, major mixed use resi-


dential or commercial development, government offices, and essential services. Notably, single-family uses are prohibited. Heights are increased to a maximum of 7 stories/75 feet for apartments, though only 6 stories/65 feet for “major mixed use residential.” Floor area ratios are increased to 3 for “major mixed use residential” and 3.5 for “other uses.” Much of the remainder of the study area is classified as R-M, High Density Residential, or CBD, Cen-tral Business District. High Density Residential allows single-family dwellings, two-family dwellings, attached townhouses, low-rise apartments, high-rise apartments, home occupations, family day care homes, and essential services. Maximum heights in the R-M zone are 2.5 stories/35 feet for most uses, but 14 stories/160 feet for high-rise apartments with a floor area ratio of 1.8.

The Central Business District allows professional and business offices, retail commercial, banks, restaurants, movie theaters, cultural centers, dance studios, fast food establishments (pedestrian oriented), apartments above street level, fitness centers, and essential services. Heights are limited to 5 stories/55 feet in the CBD with a floor area ratio of 2.5.


Figure 5 - Study Area Zoning Map


3.5.2 Bayonne Town Center Studies

A number of planning and economic studies were conducted in the study area following adoption of the Master Plan in 2000. Many of them repeated common themes of CBD revitalization, increased TOD, connections between the CBD and the 22nd Street HBLRT Station, and reuse of brownfields and other heavy commercial sites around the HBLRT. A summary of studies provided to the CPAP volunteer team follows.

A Comprehensive Revitalization Strategy for the Broadway Corridor Part II: 17th to 55th Street2003, David Milder for Bayonne Economic Development Corporation

Study Area: Broadway Corridor/Bayonne Town Center.

Recommendations were targeted to elected and economic development officials in Bayonne, and included a recommendation to expand the Town Center to include the 22nd Street HBLRT Station area, develop destination amenities such as a movie theatre or ice rink, conduct a parking plan, and redevelop existing surface parking lots, along with other retail attraction strategies.

A Strategy: Empowering the Town Center to Thrive in an Increasingly Competitive Economic Environment 2005, David Milder for Bayonne Town Center Management Corporation Board of Trustees

Study Area: Bayonne Town Center – Broadway between 17th and 30th Streets and along 22nd Street from Church Lane to Del Monte Drive.

This study identifies the challenges facing the transit district and Town Center, and strategies for business attraction and redevelopment. Recommendations included increasing Class A commercial and retail spaces, concentrating density between 19th and 21st Streets and Broadway and Avenue E, preserving and rehabilitating buildings with architectural merit, targeted marketing to national chains and proven (re)developers, and other efforts to create more attractive public realm.

The Strategic Plan to Improve the Economic Health of the Bayonne Town Center 2009, Benecke Economics for the Bayonne Town Center Management Corporation

Study Area: Broadway Corridor (between 17th and 30th Streets/Bayonne Town Center).

This study outlines the steps or strategies necessary to overcome the variety of challenges of the City of Bayonne to drastically improve the economic vitality of the Bayonne Town Center. Recommenda-tions included making the CBD a social as well as economic center, reduce “consumption leakage” so that residents shop local, hold regular civic events and maximize use of state incentive programs. This study notably recommends shrinking the Broadway retail district as a way of creating a center of retail activity.


Storefront and Façade Guidelines for the Bayonne Town CenterDate Unknown, Author Unknown

Study Area: Bayonne Town Center and Broadway Corridor.

The CPAP volunteer team was provided with an unattributed paper that offers architectural guidelines or regulations designed for the general Bayonne Town Center and then specifically for the Broadway Corridor. The guidelines are similar to a form-based code in format except that they do not contain any illustrations. The guidelines provide architectural standards for building facades and details, entrances, storefronts, windows, building massing, setbacks and parking among other related consid-erations.

3.5.3 Studies Pertaining to the HBLRT Stations

Transit Friendly Communities for New Jersey: City Of Bayonne: Enhancing Community Con-nections To The Hudson-Bergen Light Rail 2002, Project for Public Spaces and Regional Plan Association for NJ TRANSIT and City of Bayonne

Study Area: Entire city.

This study was one in a series developed for NJ TRANSIT’S Transit-Friendly Communities for New Jersey Program, which was partially funded through a grant from the Federal Highway Administra-tion’s Transportation, Community and System Preservation Program. This study explored develop-ment opportunities around Bayonne’s then-planned light rail stations and the integration of the Transit Development District along Avenue E with the Broadway commercial corridor.

Recommendations included the need for lighting, safety, and streetscape enhancements around the 22nd Street HBLRT Station, the use of the 21st and 22nd Street overpasses for signage, pedestri-an-scale lighting and signage, pedestrian-friendly facades, and other improvements to the public realm. In addition, this study “tested” the zoning ordinance with hypothetical development proposals and recommended changes to the ordinance to make it more successful, including the increasing of residential densities, the reduction of site thresholds to reflect the typically small lot sizes in the area, the development of urban design guidelines and the reduction of parking ratios commensurate with transit access.

Land Development at Selected Hudson-Bergen Light Rail Stations2008, Alan M. Voorhees Transportation Center for NJ TRANSIT

Study Areas: Five station areas along the Hudson Bergen Light Rail Transit between Bergenline Ave-nue Station in Union City and 34th Street in Bayonne.

This study updated earlier work as part of an effort to monitor and document the development pro-cess along the HBLRT. The study included the 34th Street Station in light of the then-planned 6,000


unit-development at the Military Ocean Terminal-Bayonne. The study found that demand for TOD is broad based and that property values and ratables have grown exponentially along the HBLRT, but full development will take many years to be realized.

3.5.4 Redevelopment Plans in the Study Area

Draft Comprehensive Redevelopment Study of the 22nd Street Station Area 2013, Phillips Preiss Grygiel, LLC for the Port Authority of New York and New Jersey

Study Area: West side of Avenue C (West), 30th Street (North), Hudson Bergen Light Rail (East, 17th to 19th, 25th to 30th Sts.), East side of Avenue F (East, 19th to 25th Streets), 17th Street (South).

The Port Authority provided the City of Bayonne a grant to investigate whether the Study Area qual-ified as an area in need of redevelopment pursuant to the New Jersey Local Redevelopment and Housing Law (N.J.S.A. 40A: 12A-1 et seq). The City identified the study area because of “the deterio-rating condition of the Broadway CBD, the need to address blight in the area around the 22nd Street Station and the availability of vacant/underutilized properties that are suitable for transit-oriented development.” The study had the following findings:

1. The entire study area meets the criteria for an area in need of rehabilitation because the majority of the housing stock is over 50 years of age, and that incentivizing property improvement projects would “greatly enhance” the housing stock.

2. The portions of the study area within Bayonne’s Urban Enterprise Zone can be desig nated an area in need of redevelopment.

3. 38 parcels within the study area meet the criteria for a designation of area in need of redevelopment (not including the Maidenform site, which has an existing designation). The majority of the designated parcels lie along the east side of Avenue E, most of the block between 19th and 21st Streets and Broadway and Avenue E, and the NE cor ner of Broadway and 21st Street.

Area in Need of Redevelopment Investigation of Block 196, Lots 1-52013, Phillips Preiss Grygiel LLC for the Port Authority of New York and New Jersey

Study Area: Five lots on the corner of 23rd Street and Broadway.

The analysis found that Lots 4 and 5 (Block 196) are in need of redevelopment.


Redevelopment Study and Preliminary Investigation Report: Bayonne Plumbing Redevelop-ment Study Area –Block 454, Lots 1 and 2September 30, 2013, T&M Associates

Study Area: Block 454, Lots 1 and 2

This redevelopment study provides an overview of the existing conditions of Block 454, Lots 1 and 2, located on Avenue E between 22nd and 23rd Streets, in the context of its surrounding environs. The applicable regulatory constraints of the subject properties are also outlined in the study including zon-ing requirements and planning recommendations. Significant findings of the study illustrate the site’s current industrial and gasoline service station uses; surrounding commercial/service, industrial and residential uses; and its location adjacent to the 22nd Street Station.

The remainder of the study describes the criteria for the determination of the site as an area in need of redevelopment. T&M Associates concludes in its redevelopment analysis that the subject proper-ties qualify as areas in need of redevelopment fulfilling several criteria specified in Section 5 of the Local Redevelopment and Housing Law (N.J.S.A. 40A: 12A-1 et seq). These provisions include the site’s location within a city-wide rehabilitation area and Urban Enterprise Zone, discontinuation of its former use, lack of potential to be re-used as its former use, and dilapidated physical conditions.

Redevelopment Plan Block 454, Lot 2 October 9, 2013, T&M Associates

Study Area: Block 454, Lot 2

The Redevelopment Plan for Block 454, Lot 2 provides an overview of the statutory requirements for the lot’s designation as an area in need of redevelopment, requirements for future development in that area and review process for proposed redevelopment projects on the subject site located at the corner of East 22nd Street and Avenue E in Bayonne.

The redevelopment plan recommends mixed-use development on the site consisting of multi-family residential units and street level commercial space along Avenue E. Objectives of the plan are con-sistent with those of other local regulatory agencies emphasizing the advantages of the site’s prox-imity to public transit and promotion of transit-oriented development. In addition, the plan seeks to improve the economic viability of Bayonne, strengthen its housing stock, foster a balance of uses in the city and enhance the aesthetic quality of the community, among other goals.

Qualified developers will be selected on the basis of their abilities to achieve the redevelopment plan objectives and adhere to building requirements. First the City Council, then Planning Board, will be responsible for reviewing redevelopment proposals for the site to ensure they meet those building requirements and design standards as set forth in the plan.


4.0 Vision for the 22nd Street HBLRT Station Neighborhood

Visioning is the process of developing consensus about what future a community wants and then deciding what is necessary to achieve it. This community visioning process focused on one particular area of the City of Bayonne - the 22nd Street HBLRT Station Neighborhood. Provided below are sev-eral statements that articulate the stakeholders’ desires for the future of this neighborhood.

The 22nd Street HBLRT Station Neighborhood should be a microcosm of the City of Bayonne, reflecting the strong sense of community, and small town feel in this urban environment.

The City of Bayonne exudes a sense of place and community with a distinct history and character. This is a stable, middle- and working-class community, and one of the most affordable residential and commercial destinations within a 40-minute transit commute of Manhattan. Redevelopment within the existing fabric and framework of a 400-year-old community may be more attractive for newcomers than the sterility of a newly manufactured TOD neighborhood.

The 22nd Street HBLRT Station Neighborhood contains former industrial properties, uses that are not conducive to a transit oriented development neighborhood, and run-down conditions. While keeping true to the existing Bayonne community context, the look and feel of this neighborhood needs to be changed in order to attract new residents and commercial enterprises. New developments should be designed to reflect a new, contemporary feel for the neighborhood. Street furniture, landscaping and other amenities should also be added and should reflect this contemporary feel. However, careful attention should be paid to the types of new developments and uses (residential, retail, open space) permitted in the neighborhood so as maintain a cohesive community environment.

The 22nd Street HBLRT Station Neighborhood should be branded and marketed as a transit oriented neighborhood.

The 22nd Street HBLRT Station Neighborhood possesses significant assets that provide a solid foun-dation for transit oriented development. These assets include:

• proximity to New York City, Jersey City, Hoboken, Newark Liberty International Airport and other significant job centers and amenities

• public transportation options including the Hudson Bergen Light Rail Transit system and buses

• opportunities for redevelopment on former industrial sites


• opportunities to provide the type of housing, retail and other activities conducive to transit oriented development

• opportunities to provide mixed-use development at higher densities that can support and be supported by public transit

However, negative perceptions abound that the City is stuck in its industrial past, has limited attrac-tions for new residents, and is not a desired destination.

A marketing campaign should be created to attract transit oriented developers, residents and retail. The 22nd Street HBLRT Station Neighborhood can be marketed as a convenient residential location for commuters to the Gold Coast and Manhattan, or for people who like to experience those areas beyond the work day. This proximity places this neighborhood at a competitive advantage to much of New York’s outer boroughs and a considerable part of New Jersey and Connecticut. In addition, this proximity could be attractive to start-up firms wishing to be physically proximate to Manhattan but who cannot afford Manhattan rents. This location has a competitive advantage due to its existing, conve-nient service.

The 22nd Street HBLRT Station Neighborhood should provide various transit oriented housing options to attract young professionals as well as empty-nesters.

Bayonne has a diverse and affordable housing stock. This allows for residential mobility within the City, the possibility of residents starting in apartments and moving up to larger housing units, or for existing residents to downsize into a new apartment, without leaving the community. By creating housing options that attract young professionals and empty-nesters, residential development in the 22nd Street HBLRT Neighborhood will help the City cater to the housing requirements for all stages of the residents’ lives. Residential redevelopment near the 22nd Street HBLRT Station has a high likelihood of success, given the high demand of housing near light rail stations and the affordability that Bayonne offers.

There is a perception that Bayonne’s only housing style is the “Bayonne Box”. New residential units within the 22nd Street HBLRT Neighborhood should break free of this style and include mid-rise, luxury residential units that contain various amenities (e.g. gyms, spas) that attract renters/buyers to modern transit oriented developments.

The 22nd Street HBLRT Station Neighborhood should have an active and vibrant street life.

While the 22nd Street HBLRT Station Neighborhood has some attractive, viable and stable retail and commercial establishments, more of these uses are needed. Room to accommodate a variety of retail, service, dining, and entertainment establishments exists; however, new establishments should not compete with businesses east of Route 440. New transit oriented retail establishments should include smaller, more boutique- type stores, bistros, and convenience-oriented entities that remain open after traditional 9 to 5 working hours. In addition, outdoor dining invites people to sit out on the


streets during the months when weather permits. An active street life not only provides more eyes on the street, and, therefore, increases the perception of safety, it is also indicative of a vibrant 24/7 com-munity that is increasingly desired in TOD neighborhoods. A diverse population engaged in an active street life is welcoming to a variety of potential residents, shoppers, visitors, and workers. An initial development emphasis area should be 4 to 5 blocks extending from the 22nd Street HBLRT Station.

The 22nd Street HBLRT Station should serve as a focal point for the neighborhood.

The 22nd Street HBLRT Station is a valuable community asset, but should be more visible and more inviting. As opposed to the 8th Street HBLT Station which has a large, architecturally pleasing station, landscaping and public art, the 22nd Street HBLRT Station has no discernable visual attributes that contribute to the neighborhood’s character. More visually pleasing signage and an entrance plaza with landscaping and public art would not only make the station more inviting to HBLRT riders, it would improve the visual impact of the station on the neighborhood.

The 22nd Street HBLRT Station Neighborhood should include open space.

While a major focus of TOD is the inclusion of higher density mixed use development, quality open space is nonetheless an important use within a transit oriented development neighborhood, as it provides residents and visitors opportunities to meet, congregate, relax, and enjoy the outdoors. Op-portunities to create a transit plaza at the 22nd Street HBLRT Station, as well as plazas (small open spaces adjacent to buildings) and small, neighborhood parks should be sought.

The 22nd Street HBLRT Station Neighborhood should be a truly intermodal neighborhood.

Intermodal neighborhoods provide more than one mode of transport for one’s journey. While a person living near the light rail station has great access to other towns along the HBLRT line, access to other parts of Bayonne without a car can be a challenge. A trolley system emanating from the 22nd Street HBLT Station could service destinations beyond this neighborhood including retail establishments on Route 440, as well as other attractions within the City. This service would have a dual affect: mini-mizing the need for residents to own cars, and bringing new residents to retail and other attractions throughout the City. The trolley would be unique to New Jersey and the Northeast with the potential to become an attraction itself.

The City is inherently walkable and bikeable. Actions should be taken to encourage more walking and biking, such as improvements to sidewalks, cross walks, lighting and other amenities. In addition, a well-delineated (with maps and signage) bicycle and pedestrian network can create access to ameni-ties throughout the City.

The vision provided above is presented in broad terms. This vision should serve as the foundation of the City’s redevelopment plan which should provide specific actions for making this vision a reality.


Appendix AStakeholder Meeting


NJ APA Community Planning Assistance ProgramVision Plan for the 22nd Street HBLRT Station Neighborhood

STAKEHOLDER VISIONING MEETINGJanuary 9, 2014

Stakeholder Meeting Summary

On January 9, 2014, a stakeholder meeting was conducted as part of the American Planning Associa-tion, NJ Chapter’s Community Planning Assistance Program (CPAP) project - Vision Plan for 22nd Street HBLRT Neighborhood. The purpose of the meeting was to get input from community stakeholders for a vision of the 22nd Street HBLRT neighborhood. The City government was responsible for identifying and inviting the stakeholders, while the CPAP volunteers were responsible for conducting the meeting.

The meeting attendee sign-in sheet is included at the end of this summary, along with the meeting agen-da.

The meeting began with a welcome and introductions by Joseph Waks, Director of Municipal Services for the City of Bayonne. This was followed by a presentation made by Dr. Colette Santasieri (the CPAP volun-teer project manager) in which she discussed the project, the purposes of the meeting and transit oriented development. Dr. Arnie Bloch (CPAP volunteer) then brought the stakeholders through a series of exercis-es and questions to extract their opinions and ideas regarding the neighborhood.

It is important to note that while a stakeholder group containing a cross section of the community would have been optimal, this stakeholder group contained several developers, so the information, opinions and ideas from the meeting were skewed toward a developer’s point of view.

The meeting served an excellent purpose for the municipal officials of Bayonne (and NJTRANSIT) to un-derstand, from the point of view of developers and some citywide business officials, what types of public sector actions are desired to help make this setting a real “economic driver” of the city (as one person noted). That is:

• Assistance with an overall marketing campaign to better sell Bayonne as a place to live for young commuters, young families, and empty nesters.

• Administrative actions that can shorten, make more predictable, and ease the review process for land acquisition and development.

• Assistance with relocation of the Exxon gas station out of the area.

• New thinking/planning/action (possibly including private/public partnerships) on transit that would better connect potential new residents to both potential new Broadway attractions (e.g., restaurants, bars) and existing shopping opportunities east of 440.

• New thinking about off-street parking needs for potential new residents and users of potential new retail attractions on Broadway.

• Prioritize of the City’s capital investments in the 22nd Street HBLRT neighborhood.

Beyond these developer points of view, there was valuable input for the creation of a vision plan.


The stakeholder group identified the following negative aspects of the 22nd Street HBLRT Sta-tion neighborhood:

• Development has not changed much since inception of the HBLRT station.

• Dirty, run down, and dilapidated

• Lack of “Hip” new restaurants

• Lacks high rise multi-family dwellings

• Raw/Unpolished

• The station is isolated.

• The neighborhood still looks dark and industrial.

The stakeholder group identified the following assets of the City of Bayonne:

• Proximity to New York City, Newark airport, amenities

• Good public transportation – light rail, bus

• Small town/suburban feel in urban area

• South end of Gold Coast.

• Strong sense of community/solid community

• Family-oriented community

• Convenience

• Good Infrastructure – social, transportation, maritime

• Good exiting utilities

• A community that caters to all stages of life/life cycle

• Safe


The stakeholder group also identified the following assets of the 22nd Street HBLRT Station neighborhood:

• Good opportunity to create a town center

• Good food/restaurant options

• 25 minute light rail trip to World Trade Center, NYC

• Easiest area to assemble property

• Opportunity to create blocks of buildings

• Easier than developing infill sites

• Good access to highway and transit

• Area allows for greater density

• There is existing and potential for more mixed-use development.

• Area can be perceived as a “blank slate” for new development.

• Affordability

• Potential for rejuvenation

The stakeholder group expressed a desire for the following:

• Rebrand and market the 22nd HBLRT Station neighborhood

• The perception is that there is nothing to do here so people won’t move here.

• Bayonne developers know how to make the process work, but not developers from out of town. To them the town has a stigma and bad impression.

• Perception is that Bayonne is 50 years behind the times and is not going to change

• Perception is that the only housing is the “Bayonne Box”

• Create a marketing budget for Bayonne

• Create/improve civic space/new parks


• Build luxury residential units that include luxury amenities – gyms, spas, etc.

• Build mid-rise development – 6 to 10 stories

• Need high-end residential with a good mix of commercial.

• Need larger building lots to make new development economically feasible and provide the amenities that new people are looking for.

• Emphasize new development within 4 to 5 blocks of 22nd Street HBLRT Station between 17th Street and 22nd Street

• Solicit businesses for improved retail options on Broadway

• Preserve long time staples of Bayonne

• Look to Westfield, New Jersey and Red Hook, Brooklyn as precedents for new development in Bayonne

• Consider developing high end private schools in Bayonne

• Install trolley service from the station to other points in Bayonne

• Create a new or contemporary design for new development and civic improvements

• Consider constructing a parking garage

• Consider opportunities for adaptive reuse

• Change the look and feel of the neighborhood:

• Professionally done.

• More modern.

• Provide parking. Parking is a big problem today for residents.

• Deal with current traffic going through the neighborhood to Route 440.

• Don’t compete with businesses east of Route 440 – business here should be smaller, more boutique-type, bistros, etc.




AGENDA

• Welcome and Introductions Joseph Waks

• Ice Breaker Exercise Arnold Bloch

• Overview of the Study Colette Santasieri

• Purpose of the Meeting Colette Santasieri

• What is Transit Oriented Development? Colette Santasieri

• Community Visioning Exercises Arnold Bloch

• Agreements Reached Arnold Bloch

• Next Steps Colette Santasieri




ATTENDEES

Name Affiliation

Samantha Howard Community DevelopmentDonna Ward Zoning OfficerMitchell Burkosky Skyhail DevelopmentVincent Alessi Alessi OrganizationFrancesco Alessi Alessi OrganizationJoe Waks City of BayonneJoe Hurley City CouncilMichael Mireli Connell FoleyJohn R. Cali Cali Futures LLCStephen J. Gallo City of BayonneDoug Stern Silk LoftsJohn Leon NJ TransitAnnette Rubin Bayonne Chamber of CommerceTerrence Malloy City of Bayonne Suzanne Mack City of BayonneArnold Bloch Community Planning Assistance Program Tom Schulz Community Planning Assistance ProgramColette Santasieri Community Planning Assistance ProgramIndradeep Chakraberty Community Planning Assistance ProgramThomas Behrens Community Planning Assistance ProgramKimberly Cenno Community Planning Assistance ProgramJohn Caulfield Community Planning Assistance Program

vision plan for the 22nd street hudson bergen light rail station neighborhood (bayonne)

Government & Nonprofit

vision plan bayonne

nd street hblrt station

public transit station

hblrt stations

project area

master plan

broad brush vision plan

tod neighborhood e