14th Street Tunnel shutdown

Coordinates: 40°43′26″N 73°58′01″W / 40.724°N 73.967°W / 40.724; -73.967

Tunnels flooded by Hurricane Sandy

The New York City Subway's 14th Street Tunnel, which carries the BMT Canarsie Line (serving the L train) under the East River in New York City, is proposed to be closed from April 2019 to July 2020 to allow for necessary and extensive repairs after it was flooded and severely damaged during Hurricane Sandy in 2012.

Two options were proposed in 2016: a three-year construction period where one tube at a time would be closed or an 18-month closure where both tubes would be worked on simultaneously. The Metropolitan Transportation Authority ultimately chose the 18-month closure option because it would be less disruptive to passenger service. The shutdown period was later reduced to 15 months to reduce service disruption. To accommodate displaced passengers, new or expanded bus, subway, and ferry service will be added. The shutdown plan has been criticized by riders who use the L train and people living along or near 14th Street in Manhattan.

Background

Damaged tunnels after draining

In October 2012, Hurricane Sandy caused severe damage to New York City, and many subway tunnels were inundated with floodwater. The subway opened with limited service two days after the storm and was running at 80 percent capacity within five days; however, some infrastructure needed years of repair. A year after the storm, a spokesman for the Metropolitan Transportation Authority (MTA), which operates the New York City Subway, said that Hurricane Sandy "was unprecedented in terms of the amount of damage that we were seeing throughout the system."[1]

The storm flooded nine of the system's 14 underwater tunnels, many subway lines and yards, and completely destroyed a portion of the IND Rockaway Line in Queens, as well as much of the South Ferry terminal at Manhattan's southern tip. Reconstruction required many weekend closures on several lines and long-term closures on the Greenpoint Tunnel, Montague Street Tunnel, Rockaway Line, and the South Ferry station. A long-term closure was planned for the 14th Street Tunnel because it was significantly damaged by the storm surge.[2] Moreover, the 14th Street Tunnel dates from 1924;[3] thus its equipment was already 88 years old when Hurricane Sandy occurred.[4]

Planning

a bus on the M14D route
Initial contingency plans for the shutdown called for the M14 bus to be converted to Select Bus Service

Closure options

In January 2016, the Canarsie Line between Bedford Avenue in Brooklyn and Eighth Avenue in Manhattan was proposed for either of two shutdown options.[5] One option involved shuttering the entire segment for eighteen months. The other option would allow the MTA to operate two segments of track for three years: a single-track segment between Bedford and Eighth Avenues with a capacity of 5 trains per hour per direction, and regular service between Lorimer Street and Rockaway Parkway.[5] For both options, the Third Avenue station would be closed and new exits and elevators at the First Avenue and Bedford Avenue stations would be added. The renovations would cost between $800 million and $1 billion;[5] as of July 2018, the project budget includes $926 million.[6]:13 During the shutdown, workers would replace damaged communications, power and signal wires, third rails and tracks, duct banks, pump rooms, circuit breaker houses, tunnel lighting, concrete lining, and fire protection systems.[7][8] Three new electric substations would provide more power to run more trains during rush hours.[9]

Community meetings were held to determine which of the two options would be better.[10] In an internal assessment, the MTA concluded that four out of five L train riders would be less impacted by the full-closure option compared to the partial-closure option.[11]:13 Additionally, the single-track option would result in severe overcrowding at First and Bedford Avenues.[11]:12 A subsequent poll conducted by transit-advocacy group Riders Alliance revealed that 77 percent of L train riders preferred the 18-month closure option.[12][13] In July 2016, it was announced that the MTA had chosen the 18-month full closure option.[9][14][12] Riders reacted with both disappointment over the closure,[12] and relief that the service disruption would be shorter.[15] The New York Post described the closure with the headline, "2019 is the year Williamsburg dies."[15]

Map of service alternatives during the 14th Street Tunnel shutdown
Map of service alternatives during the 14th Street Tunnel shutdown.[16]:13
  • Colored thick lines represent alternate routes to the L train across the East River and in Manhattan.
  • Solid black lines represent route segments indirectly affected by the implementation of alternate route patterns.
  • Thin gray lines represent route segments unaffected by the shutdown.
  • The segment of the L train that will remain open is represented by a thick, solid gray line.
  • The segment of the L train to be temporarily closed is represented by a thick, dashed gray line.

The MTA named Judlau Contracting and TC Electric as the project's contractors on April 3, 2017, at which time the duration of the shutdown was shortened to 15 months. It offered the contractors a $188,000-a-day bonus for completing work up to 60 days early.[17]:41 as well as a $15 million bonus for completing the project on time; the MTA also stipulated that the companies would need to pay a fine of $410,000 for each day that work is delayed past the 15-month deadline.[8] The joint venture is also responsible for renovating the First Avenue and Bedford Avenue stations during the shutdown,[18] as well as adding platform screen doors to the Third Avenue station.[19][20] According to a July 2018 report, construction was supposed to be "substantially completed" by November 2020.[6]:13

Initial mitigation plans

The MTA indicated that during the shutdown, the L route would only have a frequency of ten trains per hour between Bedford Avenue and Rockaway Parkway, because of severely constrained terminal capacity at Bedford Avenue.[21]:12 In mid-2016, the MTA devised preliminary mitigation plans. It proposed additional shuttle bus, ferry, and subway service, extending G trains from four cars to eight, and running the M to Midtown Manhattan daily.[22] A ferry route between Williamsburg and East Village, Manhattan, would be instituted;[22] the M14A and M14D buses might be converted to Select Bus Service; and dedicated bus lanes would be placed on crosstown corridors in Manhattan.[22][7] The MTA would institute two out-of-system subway transfers, free if paid via MetroCard: one between Broadway (G train) and Lorimer Street (J and M trains), and one between Livonia Avenue (L train) and Junius Street (3 train).[14][12] Preliminary documents also proposed that the four toll-free East River bridges between Manhattan and Long Island (the Queensboro, Williamsburg, Manhattan, and Brooklyn Bridges) might gain a high-occupancy vehicle (HOV) restriction of at least three passengers per vehicle during rush hours.[23]

In December 2017, the MTA and the New York City Department of Transportation released a more concrete mitigation plan, based on projections that 80% of riders would transfer to other subway services to get to Manhattan, while 15% would use buses.[24] An HOV restriction on the Williamsburg Bridge during rush hours would allow it to accommodate three SBS routes between Brooklyn and Manhattan. Route L1 would stretch from Union Square, Manhattan, to the Grand Street station in Brooklyn; L2 would connect SoHo, Manhattan to the Grand Street station; and L3 would go from SoHo to Bedford Avenue. In addition, 14th Street between Third and Ninth Avenues would be converted into a bus-only corridor during rush hours to accommodate an SBS route across 14th Street, connecting to a ferry route at Stuyvesant Cove Park near 23rd Street. The mitigation plan also entailed improvements to six subway stations, new entrances at two stations, enlarged crosswalks near these subway stations, longer G and C trains, three free out-of-system transfers,[lower-alpha 1] increased service on the G, J/Z and M, and a weekend extension of the M train to 96th Street and Second Avenue. Finally, the plan included an expansion of New York City's privately-operated bike share system, Citi Bike, as well as upgrades to bike lanes on Brooklyn's Grand Street and a pair of crosstown bike lanes on 12th and 13th Streets.[25][26][27] Some subway entrances on each of the affected routes would also be reopened.[28]

On December 14, 2017, members of the New York City Council held a hearing in which they asked the MTA head and NYCDOT Commissioner over the shutdown. The central question was whether the MTA could complete repairs by the July 2020 deadline.[29][30] It was projected that during the shutdown, the 14th Street buses would become the most-used bus corridor in the city, and that 70 buses in each direction would travel across the Williamsburg Bridge every hour. As a result, Lower Manhattan politicians worried that the narrow streets in the area would not be able to accommodate the high-capacity buses.[31]

Modified mitigation plans

Proposed peak-direction shutdown headways in trains per hour (tph)[21]:12–13
Line Routes Headway before
shutdown (tph)
Headway after
shutdown (tph)
BMT Canarsie Line
(Bedford Ave to Rockaway Pkwy)
"L" train 20 -10 10
BMT Jamaica Line
(Marcy Ave to Myrtle Ave)
"J" train "Z" train 12 21 -2 10 +3 24
"m" train 9 +5 14
IND Crosstown Line
(Court Square to BedfordNostrand)
"g" train 9 +6 15
IND Crosstown Line
(Bedford–Nostrand to Bergen St)
+3 12
IND Culver Line
(Bergen St to Church Ave)
"f" train 14 23 Steady 14 +3 26
"g" train 9 +3 12
IND Queens Boulevard Line
local tracks
"m" train 9 19 +3 12[lower-alpha 2] +1 20
"r" train 10 -3 8[lower-alpha 2]
IND Sixth Avenue Line
local tracks
"f" train 14 23 Steady 14 +5 28
"m" train 9 +5 14

In June 2018, as part of a lawsuit settlement, the MTA agreed to install elevators at the Sixth Avenue station and conduct an environmental impact study on the Canarsie Tunnel rehabilitation's effects.[32] The city also considered turning 14th Street into an exclusive busway 17 hours a day during all days of the week, and changed its initial plans for a two-way bike lane on 13th Street to two separate bike lanes on 12th and 13th Streets.[33] When the 14th Street busway is enforced during the shutdown, the only vehicles that could use the busway would be buses, trucks making deliveries on 14th Street, emergency and Access-A-Ride vehicles, and local traffic traveling for no more than one block.[11]:6364

Separately, the MTA revised contingency plans so that there would be four SBS routes. They included the already-planned L1 Union Square–Grand Street, L2 SoHo–Grand Street, and L3 SoHo–Bedford Avenue routes, as well as a new route L4 between Union Square and Bedford Avenue. The four routes combined would carry 17% of displaced L train riders, while subways would carry another 70% and other transport methods would make up the remaining 13%. Citi Bike announced plans to add 1,250 bikes and 2,500 bike-share docks during the shutdown.[34] A private company also announced their intention to create a luxury "New L" shuttle van service during the shutdown.[35]

In July 2018, the MTA and NYCDOT announced that the M14 Select Bus Service route would be implemented by January 6, 2019, three months before the tunnel is set to shut down. It would initially run with five stops in each direction between First Avenue/14th Street and 10th Avenue/14th Street. Local service on the M14A and M14D would be retained with minor modifications.[36] One or two weeks before the tunnel closes, the M14 SBS would be extended to Stuyvesant Cove. The M14A/D local and the M14 SBS would be able to serve a combined 84,000 passengers every hour, with a bus every two minutes during rush hours.[37][38][11]:39 Sidewalks on nearby streets would be widened, and temporary pedestrian plazas would be designated, to accommodate the new Select Bus Service routes.[21]:33

The MTA also released additional details about headways on affected transit routes. The peak frequency of the G would be increased from eight trains per hour (TPH) to 15 TPH between Court Square and Bedford–Nostrand Avenues, and from 8 to 12 TPH south of Bedford–Nostrand Avenues. The M's peak frequency would be increased from 9 to 14 TPH between Myrtle Avenue and Manhattan, while the frequency of the J/Z and R trains would be decreased to accommodate the additional M service running on the same tracks. Several other subway routes between Manhattan and Brooklyn or Queens would have additional off-peak service.[21]:12–13 For bus route headways, the combined peak frequency of the M14 variants would be increased from 25 buses per hour to 35,[21]:13 and the B39 bus across the Williamsburg Bridge would be temporarily suspended because it would completely duplicate the temporary L3 route.[21]:46 The L1 through L4 buses would provide a combined 80 buses per hour during peak hours.[21]:38 Headways on local bus routes in Brooklyn that would connect with the L shuttle buses, such as the B6, B32, B48, B57, B60, B62 and B103, would also be increased. The ferry service between Stuyvesant Cove and North 7th Street would run at a frequency of 8 trips per hour in each direction during rush hours.[21]:30 7 trains would see increased service during rush hours, with fourteen additional 7 train round trips.[39]:293297

In September 2018, the MTA indicated that the New York City Economic Development Corporation would manage the temporary L shuttle ferry's operation, since the NYCEDC already operates ferry routes in New York City under the NYC Ferry label. In turn, the NYCEDC would contract the temporary shuttle ferry's operation out to NY Waterway as per the results of a request for proposals.[39]:261262 The ferry would operate for 15 months during the shutdown. The shuttle will operate every 10 to 15 minutes from 6 a.m. until midnight on weekday nights, and until 2 a.m. on weekend nights. During rush hours, ferries would run every 7 12 minutes. Free transfers will be available between the ferry and two Select Bus Service routes, one on either side of the East River.[21]:32[40]

The same month, it was announced that an additional bus route, L5, would operate rush hours between Canarsie Pier and Crown Heights, connecting Canarsie residents to the Crown Heights–Utica Avenue station on the 2, 3, 4, and 5 trains. Unlike the other temporary routes, the L5 will not be a Select Bus Service route, and will only operate during rush hours every 20 minutes. It will start at Canarsie Pier and make a limited number of existing B42 stops on Rockaway Parkway south of Flatlands Avenue in both directions, one stop on Flatlands Avenue at Remsen Avenue, then continue without stopping until its terminal at Utica Avenue.[41]

Temporary L shutdown bus routes

The following routes are planned to operate during the shutdown:[16]

Route Terminals Streets traveled Notes and history
Manhattan Brooklyn
Manhattan
Brooklyn
L1
[16]
Select Bus Service
Gramercy
1st Avenue and 15th Street
East Williamsburg
Grand Street and Bushwick Avenue
at Grand Street ( L  train)
1st Avenue (westbound), 2nd Avenue, Houston Street (eastbound), Allen Street, Delancey Street Borinquen Place, Grand Street
  • Will operate during rush hours only.
  • Intermediate stops at Delancey Street/Essex Street in Manhattan and Grand Street/Union Avenue in Brooklyn
L2
[16]
Select Bus Service
SoHo
Lafayette and Houston Streets
at Broadway–Lafayette Street/Bleecker Street ( 4   6   <6>   B   D   F   M  trains)
East Williamsburg
Grand Street and Bushwick Avenue
at Grand Street ( L  train)
Kenmare Street, Lafayette Street (westbound), Houston Street, Bowery (eastbound), Delancey Street Borinquen Place, Grand Street
  • Will operate at all times.
  • Intermediate stops at:
    • Delancey Street/Essex Street (both directions) and Lafayette/Spring Streets (westbound) in Manhattan
    • Grand Street/Union Avenue in Brooklyn
L3
[16]
Select Bus Service
SoHo
Lafayette and Houston Streets
at Broadway–Lafayette Street/Bleecker Street ( 4   6   <6>   B   D   F   M  trains)
Williamsburg
North 5th Street and Bedford Avenue
at Bedford Avenue ( L  train)
Kenmare Street, Lafayette Street (westbound), Houston Street, Bowery (eastbound), Delancey Street North 5th Street, Roebling Street (westbound), Broadway, Berry Street (eastbound)
  • Will operate at all times except late nights.
  • Intermediate stops at:
    • Delancey Street/Essex Street (both directions) and Lafayette/Spring Streets (westbound) in Manhattan
    • Berry/South 3rd and North 4th Streets (eastbound) and Roebling/South 3rd Street (westbound) in Brooklyn
L4
[16]
Select Bus Service
Gramercy
1st Avenue and 15th Street
Williamsburg
North 5th Street and Bedford Avenue
at Bedford Avenue ( L  train)
1st Avenue (westbound), 2nd Avenue, Houston Street (eastbound), Allen Street, Delancey Street North 5th Street, Roebling Street (westbound), Broadway, Berry Street (eastbound)
  • Will operate at all times except late nights.
  • Intermediate stops at:
    • Delancey Street/Essex Street in Manhattan
    • Berry/South 3rd and North 4th Streets (eastbound) and Roebling/South 3rd Street (westbound) in Brooklyn
L5
[16]
Limited-Stop Service
Crown Heights
Utica Avenue and Eastern Parkway
at Utica Avenue ( 2   3   4   5  trains)
Canarsie
Rockaway Parkway and Belt Parkway
N/A Rockaway Parkway, Remsen Avenue
  • Will operate during rush hours only.
L14
[16]
Select Bus Service
Meatpacking District
14th Street and 10th Avenue
Williamsburg
North 5th Street and Bedford Avenue
at Bedford Avenue ( L  train)
14th Street, Avenue A, Essex Street, Delancey Street North 5th Street, Roebling Street (westbound), Broadway, Berry Street (eastbound)
  • Will operate late nights only, when the M14 SBS is not operating.
  • Intermediate stops at:
    • 14th Street/10th, 8th, 6th, 4th, and 1st Avenues, and Delancey Street/Essex Street in Manhattan
    • Berry/South 3rd and North 4th Streets (eastbound) and Roebling/South 3rd Street (westbound) in Brooklyn

Criticism of mitigation plans

In April and May 2018, writers for the now-defunct Village Voice had published a comprehensive analysis of possible effect of the L train shutdown on other subway routes. The J/Z and M would be affected the most because these would be the only direct subway routes from Williamsburg and Bushwick to Manhattan during the shutdown.[42] The G would also carry displaced L train riders from Williamsburg and Bushwick to other subway routes in Downtown Brooklyn and Queens, resulting in capacity decreases on F train riders on the IND Culver Line in southern Brooklyn.[43] The A and C trains would carry L train riders transferring at Broadway Junction, which was not originally designed as a transfer station, as well as G riders transferring at Hoyt–Schermerhorn Streets, some of whom had already transferred from the L.[44] G train riders could also transfer to the E and M trains or the 7 and <7> trains at Court Square–23rd Street. As the 7 and <7> trains would reach capacity during rush hours, some riders already on that route would probably transfer to the N and W trains at Queensboro Plaza, one stop east of Court Square.[45] The E and M trains would also reach capacity during rush hours, bringing cascading effects to E, F, M, and R riders further east in Queens.[46] One Voice writer concluded that "If you do not take the J, M, Z, A, C, 7, F, G, E, M, or R lines, then I have some good news: You're probably, probably not screwed during the L train shutdown. Except — you had to know there would be exceptions — for those of you who take the 3 and the N/W." In total, fourteen services would be affected by the shutdown.[47]

In October 2018, the mitigation plans were described by a Curbed NY writer as inadequate, because of the lack of nearby subway routes that go directly to Manhattan; the lack of passenger capacity at key transfer stations; and the fact that nearly a quarter-million riders use the L train every day. The Curbed writer stated that one service disruption on the J, M, and Z trains would have a ripple effect on displaced Canarsie Tube riders.[48]

Construction

The first construction work related to the 14th Street Tunnel shutdown began in 2017. Workers excavated shafts at the First Avenue and Bedford Avenue stations so equipment could be lowered into the tubes. After the repairs are completed, these shafts are to be converted into additional entrances for those stations.[4] The construction of shafts at the First Avenue station began in July 2017 at the intersection of 14th Street and Avenue A.[49][50] Shafts were also built at Driggs Avenue and North 5th Street in Brooklyn, at the Bedford Avenue station. The Bedford Avenue station's mezzanine would be expanded to make way for the new entrances.[51] As of July 2018, the projects at First Avenue and at Bedford Avenue were about one-fifth complete.[6]:14 Starting in August 2018, the MTA would close the tunnels for 15 weekends in preparation for the full-time closure the following year.[52]

When the tubes themselves are fully closed in April 2019, construction will occur 24 hours per day. There will be three groups of 150 contractors, with each group working 8-hour shifts. The demolition and replacement of the tunnels' duct banks would take up much the project's duration. A dust collection machine, which was custom-ordered for the 14th Street Tunnel project, would include ventilation and dust filtration systems that allow dust to be contained within the tunnels. The dust would be taken out of the tunnels via flatbed cars that travel to the shafts at Avenue A in Manhattan and Driggs Avenue in Brooklyn. The demolition would be completed within three months, after which work on the new station entrances and replacement duct banks would commence. The tracks within the tunnels would also be replaced.[4]

Effects

After the shutdown was announced in 2016, some Williamsburg residents let their leases expire in 2018. As a result, housing prices began to decrease. The rate of housing vacancies in August 2018 was 25% more than the rate twelve months prior.[52]

An independently made documentary, being produced by Ian Mayer and Emmett Adler and provisionally titled "L Train Doc", is being made about the effects of the 14th Street Tunnel shutdown.[53][54]

See also

Notes

  1. The three free out-of-system transfers would be the aforementioned Broadway/Lorimer Street and Livonia Avenue/Junius Street transfers, as well as a third transfer between 21st Street (G train) and Hunters Point Avenue (7 and <7> trains) in Queens. A fourth out-of-system transfer was later added between Broadway and Hewes Street on the J, M, and Z trains.[21]:13
  2. 1 2 The change in Queens Boulevard local headways is only effective during rush hours in the peak direction from Queens (southbound in the morning, northbound in the afternoon). Rush-hour R train frequencies in the peak direction from Brooklyn (northbound in the morning, southbound in the afternoon) are unaffected.[21]:13

References

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  3. "Celebrate Opening of Subway Link". The New York Times. July 1, 1924. Retrieved February 13, 2010.
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