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MVHS DEIS: Project Overview
Return to MVHS SEQR DEIS Index.
1. Project Overview
1.1 PROJECT DESCRIPTION
1.1.1 Project Purpose (Public Need and Benefit)
Faxton St. Luke’s Healthcare (FSLH) and St. Elizabeth Medical Center (SEMC) affiliated in 2014 to become the Mohawk Valley Health System (MVHS)1. While MVHS is a private entity, its mission is to provide excellence in public healthcare for its community. Substantial effort has been focused on consolidating existing resources, eliminating redundancies, expanding the depth and breadth of services, improving access and elevating the quality of healthcare services in the region. MVHS has achieved some success, but it has been constrained by the age and physical limitations of the existing facilities.
As summarized below (Table 1), MVHS is currently comprised of three locations (see Figure 1).
Table 1. MVHS Campus Locations
FSLH Campus Locations
St. Luke’s Campus
1656 Champlain Avenue, Utica, NY
Faxton Campus
1676 Sunset Avenue (1675 Bennett Street), Utica, NY
SEMC Campus Location
SEMC Campus
2209 Genesee Street, Utica, NY
To further its goal of delivering higher quality, more effective care with better community outcomes at a lower cost, the Integrated Health Campus (IHC) will combine services from both the St. Luke’s and SEMC campuses, replace the St. Luke’s and SEMC campuses, reduce the number of beds in the community, and consolidate patient services at the IHC campus.2 In accordance with Article 28 of the Public Health Law, MVHS has applied for a Certificate of Need (CON) from the New York State Department of Health (NYSDOH) pursuant to which it would be the sole operator of the IHC.
While MVHS is a private entity, the IHC is a public facility that will serve public needs and receive public funding. MVHS’ decision to consolidate these two campuses to a single facility was motivated by several key factors and public need considerations:
The desire and need to build a facility with the newest technology, services and advancements in patient
safety and quality so that our community can receive the most up-to-date healthcare services that rivals
those found in large cities
The growing demand for healthcare due to the rapidly increasing and aging population in this region
The increasing need to improve accessibility and availability by attracting specialists and providing services
that otherwise would not be available to our community
The opportunity to gain greater operational efficiencies through the elimination of duplicative and redundant
functions will help to reduce the rate of increase in healthcare spending and to achieve improved financial
stability
The project also includes a proposed collaborative affiliation between MVHS and the Masonic Medical Research Laboratory. Research space is proposed within the new IHC that will allow Masonic laboratory researchers working behind the lab bench and MVHS clinicians working at patients’ bedsides to collaborate and create new and innovative research and clinical benefits for the Mohawk Valley and beyond. Additional information regarding the public need for the project is included in the Certificate of Need (CON) application provided as Appendix A.
1.1.2 Background and History
Funding for the project will be furnished, in part, by New York State via the Oneida County Health Care Facility Transformation Program, which provided capital funding ($300 million) “in support of projects located in the largest population center in Oneida County that consolidate multiple licensed health care facilities into an integrated system of care.”3
The MVHS Board of Directors, with Hammes Company, a healthcare consulting firm, and the Mohawk Valley Economic Development Growth Enterprises Corporation’s (Mohawk Valley EDGE or EDGE) engineering and planning professionals, engaged in a process to evaluate alternative sites for the project (see Section 2). Criteria used to evaluate 12 potential sites included: infrastructure (water, sewer, power), access, transportation network, capacity to accommodate hospital operations and parking, and no adverse impact on existing hospital operations.
The MVHS Board unanimously selected the downtown Utica site based on the site-selection criteria (above), as well as its central location, urban revitalization opportunities, and alignment with the NYS legislation that allocated $300 million for projects located in Oneida County’s largest population center. Other factors that support the downtown location (see below) include: regional accessibility with proximity to major highways, public transit systems, and the support of the regional community and government stakeholders.
1.1.3 Project Location
The MVHS IHC will encompass approximately 25-acres (see Figure 2), which will generally be bounded by Oriskany Street (NYS Route 5S) to the north, Broadway to the east, NYS Route 5/8/12 to the west, and Columbia Street, City Hall and Kennedy Apartments to the south. The proposed location is proximal to the City’s urban core, as well as the City’s proposed “U” District, existing Brewery District, Bagg’s Square and Utica Harbor Point.
1.1.4 Project Elements
As illustrated on Figure 3, the MVHS IHC will include the following elements:
Hospital building
CUP
Parking facilities (including one municipal parking garage and multiple surface lots)
Future medical office building (MOB) (by private developer)
Campus grounds
Hospital helipad
Pedestrian/utility bridge over Columbia Street
To accommodate the proposed MVHS IHC, the proposed project will involve the acquisition of properties and modifications to existing public/private utility infrastructure. Descriptions of the project elements are provided below.
Figure 2. Proposed IHC Boundary
Figure 2. Proposed IHC Boundary
Figure 3. Integrated Health Campus (IHC)
Figure 3. Integrated Health Campus (IHC)
Facilities
Hospital Building
The proposed 670,000± square foot (sf) hospital building will be constructed on parcels located west of
Broadway and will extend through Cornelia Street onto parcels located east of State Street. The hospital building
consists of a two-story podium and a seven-story bed tower.
Most services currently provided at the St. Luke’s and SEMC campuses will be transitioned to the MVHS IHC including 373± inpatient beds (see below). MVHS plans to facilitate the adaptive reuse of the vacated space at the existing facilities (see Section 8).
Central Utility Plant
A one-story CUP will service the hospital. The CUP will adjoin the southeastern portion of the podium of the
hospital building via a utility/pedestrian bridge. The CUP will house three centrifugal chillers, a heat recovery
chiller and four steam and eight hot water heating condensing boilers, each of which will be fueled by both
natural gas and No. 2 Fuel oil. A 50,000-gallon underground storage tank (UST) used to store the No. 2
fuel/diesel oil will be installed east of the CUP in the service yard (for emergency generators). A 30,000-gallon
aboveground storage tank (AST) used to store emergency water for fire protection will also be located in the
service yard.
Parking Facilities
Parking facilities will consist of a three-story, municipally-owned parking garage and multiple parking lots. The
parking garage will provide approximately 1,550 parking spaces and the parking lots will allow for an additional
1,100± parking spaces. These parking facilities will be available for use by patients, visitors, staff, and
volunteers, as well as the community for non-hospital related events.
Future Medical Office Building (MOB)
A future MOB is proposed. It is anticipated that the MOB would be owned and operated by a private developer.
As illustrated on Figure 3, the proposed location of the MOB is south of Columbia Street and west of Cornelia
Street.4
Campus Grounds
The campus will be designed as an urban park with enhanced lighting, trees, pedestrian walkways and seating
areas. A pedestrian walkway will replace a portion of Lafayette Street. This walkway will extend from the main
entrance to the west, terminating at State Street. An additional segment of the walkway will provide access to
the Emergency Department (ED) entrance. Outdoor areas will include gardens and other design considerations
to create a healing environment.
Hospital Helipad5
Similar to existing operations at FSLH and SEMC6, the IHC will have an emergency helipad. Hospital sites
generally like to locate the helipad as close as practical to the emergency/trauma area for ease of patient
transport. To facilitate access to the ED, a ground-based (vs. rooftop) hospital helipad, designed to Federal
Aviation Administration (FAA) specifications, will be situated to the west of the hospital building, adjacent to the
ED ambulance entrance and north of Columbia Street. Use of the helipad will be intermittent; approximately 40±
1 Mohawk Valley Health System is the Sole Corporate Member of Faxton-St. Luke`s Healthcare, St. Elizabeth Medical Center, St. Luke's Home Residential Health Care Facility, Senior Network Health, LLC, Visiting Nurse Association of Utica and Oneida County, Inc., and Mohawk Valley Home Care, LLC. Together, the system is governed by one Board of Directors.
2 Services offered at the Faxton Campus will not move to the new IHC.
3 https://www.nysenate.gov/legislation/laws/PBH/2825-B
4 An alternative MOB location within the footprint is south of Lafayette Street and west of Broadway.
5 In contrast to a heliport, a helipad (or helistop) is a location designated for helicopters to land and take off without facilities for refueling or repair. A hospital helipad is limited to serving helicopters engaged in air ambulance, or other hospital related functions.
6 Helipad operations at FSLH and SEMC will cease upon the transfer of operations to the IHC.
1.1.5 Construction Activities
Implementation of the project will require the physical alteration of land within the project footprint. Generally, construction activities within the 25±-acre footprint will include:
Installation and maintenance of construction-phase erosion and sedimentation controls (E&SCs)
Demolition and clearing of existing targeted facilities
Utility relocations
Site grading
Construction of IHC facilities and utility extensions/connections
Site stabilization and removal of temporary, construction phase E&SCs.
In addition, construction activities will require access and egress to and from the site by construction workers, as well as equipment and materials over the anticipated 40-month construction schedule.
1.1.6 Operation and Maintenance Requirements
The IHC will operate 24-hours per day, 7-days per week, 365-days per year.
1.1.7 Project Schedule (Including Phasing)
A 40-month construction schedule, beginning in 2019, is anticipated. While MVHS is not proposing a phased construction schedule, construction of the parking garage and MOB will be controlled by the City and private developers, respectively.
1.2 Regulatory Review and Approvals
1.2.1 State Environmental Quality Review Act (SEQRA)
Pursuant to New York State Environmental Conservation Law (ECL) Article 8, SEQRA; and Part 617 of Chapter 6 of the New York Codes, Rules and Regulations (6 NYCRR Part 617), environmental review must be completed for projects that may result in a significant adverse environmental impact so that these impacts can be identified and avoided or mitigated to the maximum extent practicable. This DEIS has been prepared to evaluate potentially significant adverse impacts and reasonable alternatives. Moreover, measures to reduce/mitigate the significant adverse impacts that may potentially result from the construction and operation of the IHC are identified in the DEIS. Steps of the SEQR process are summarized below.
Coordinated Review. Coordinated review is the process by which involved agencies cooperate in one integrated environmental review. Coordinated review has two major elements: establishing a lead agency (from among involved agencies) and identifying the interests and concerns of involved agencies so that they may be considered by the lead agency in the determination of significance and scoping the content of the DEIS.
Lead Agency coordination. On February 2, 2018, based on its receipt of an application from MVHS requesting certain, discretionary financial assistance12, and in its role as a potential involved agency, the Oneida County Local Development Corporation (OCLDC) classified the proposed action as a Type I action and initiated a 30-day lead agency coordination process13 with other identified potential involved agencies to coordinate the designation of a Lead Agency. A copy of the OCLDC letter is included in Appendix C.
As a potential Involved Agency (see Section 1.2.2), the City of Utica Planning Board, by resolution dated February 22, 2018, declared its intent to act as SEQR Lead Agency for the proposed review of the project. The intent of the City Planning Board was relayed to the OCLDC in a letter dated February 23, 2018 from the City of Utica’s Department of Urban & Economic Development14, which provides staff support to the Planning Board. Copies of the resolution and correspondence are included in Appendix C.
Notice of Determination of Significance/Notice of Intent to Prepare an Environmental Impact Statement. A determination of significance is the critical step in the SEQR process in which the Lead Agency decides whether an environmental impact statement must be prepared for an action. The two key considerations in determining significance are “magnitude” (i.e., severity) and “importance” (i.e., in relation to its setting) of impacts. On May 7, 2018, the City of Utica Planning Board, as Lead Agency, issued a “Notice of Determination of Significance (Positive Declaration) indicating its intent to require the preparation of an Environmental Impact Statement to assess potential significant environmental impacts from the project. Copies of the resolution and Positive Declaration are included in Appendix C.
Scoping. Scoping is a process that identifies potential environmental impacts of an action or actions which should be addressed in a DEIS. The purpose of scoping is to narrow issues to be addressed in the DEIS to facilitate the preparation of a concise, accurate and complete DEIS that is adequate for public review. The scoping process is intended to:
Create consensus among involved agencies
Provide additional opportunities for public participation by seeking input from the public regarding the
content of the DEIS
Minimize the inclusion and review of unnecessary issues.
On May 17, 2018, the City Planning Board issued a Draft Scoping Document, prepared by MVHS, initiating a 30- day review period to solicit written public and agency review comments. In addition, the Board held a public scoping meeting on June 7, 2018 to solicit oral comments. Based on a review of the comments (written and oral), the Board issued a Final Scoping Document on July 19, 2018. A copy of the Final Scoping Document is provided in Appendix C. The content of this DEIS is based on issues identified in the Final Scoping Document. Draft Environmental Impact Statement. In addition to issues identified in the final scoping document, SEQR regulations require that the following elements be included in the DEIS:
Cover sheet
Table of contents
Summary of the document
A concise description of the proposed action, its purpose, public need and benefits, including social and
economic considerations
A concise description of the environmental setting of the areas to be affected, sufficient to understand the
impacts of the proposed action and alternatives
A statement and evaluation of the potential significant adverse environmental impacts at a level of detail that
reflects the severity of the impacts and the reasonable likelihood of their occurrence including, as applicable:
» Reasonably related short-term and long-term impacts, cumulative impacts and other associated
environmental impacts
» Those adverse environmental impacts that cannot be avoided or adequately mitigated
» Any irreversible and irretrievable commitments of environmental resources that would be associated
with the proposed action
» Any growth-inducing aspects of the proposed action
» Impacts of the proposed action on the use and conservation of energy
» Impacts of the proposed action on solid waste management and its consistency with the state or locally
adopted solid waste management plan
A description of the mitigation measures
A description and evaluation of the range of reasonable alternatives to the action that are feasible,
considering the objectives and capabilities of the project sponsor including the “no action”15 alternative.
A description of the project’s impact on “Environmental Justice”16 issues
A list of any underlying studies, reports, EISs and other information obtained and considered in preparing the
DEIS.
The DEIS is supported by field and issue-specific studies and evaluations that describe the project's potential impact and methods to reduce/mitigate any potential significant adverse impact on the environment. Information from these supporting studies is relied upon in the document, with the complete reports provided as appendices:
Hospital Site Selection Process Summary Memorandum (Appendix D)
Phase 1A Cultural Resource Investigation (Appendix E)
Phase 1A Architectural Inventory (Appendix E)
Traffic Impact Study (Appendix F)
Preliminary Geotechnical Review (Appendix G)
Preliminary Environmental Due Diligence Review (Appendix H).
Final Environmental Impact Statement (FEIS)/Findings. Upon acceptance of this DEIS by the City Planning Board, it will be made available to the public (see below) and involved/interested agencies17 for the purposes of soliciting substantive comments. Both written and oral comments will be received, with the latter obtained at a public hearing to be scheduled during the overall comment period.
Following the comment period, a Final Environmental Impact Statement (FEIS) will be prepared. The FEIS will include responses to the substantive agency and public comments raised during the comment period. The FEIS will be used by the involved agencies (including the City Planning Board, as Lead Agency) to make written findings of fact regarding the environmental effects of the proposed actions. In their respective findings, involved agencies weigh and balance the relevant environmental impacts along with social, economic, and other essential considerations to determine whether the action will minimize or avoid environmental impacts to the maximum extent practicable. “Findings” will be based on information presented in the FEIS. Implementation of the action will not proceed until written findings are filed and all other applicable permits and approvals obtained (see below).
Public notice. Notices relevant to this project, including those related to SEQR procedures and filings, will be published in the Utica Observer Dispatch, as well as the NYSDEC’s Environmental Notice Bulletin (as appropriate). In addition, SEQR materials will be accessible on the internet at the following address (http://www.cityofutica.com/).
Supporting information. Preparation of this DEIS was aided by the contributions of several agencies that contributed technical information incorporated and referenced in this document. Key contributors by category included:
Infrastructure
City of Utica
Mohawk Valley Water Authority (MVWA)
National Grid
Oneida County Department of Water Quality and Water Pollution Control (WQ&WPC)
Regulatory Programs
City of Utica (multiple departments)
FAA18
NYSDEC
NYSDOH
NYSDOT
NYS Office of Parks, Recreation & Historic Preservation – Field Services Bureau19
Oneida County Department of Emergency Services.
Environmental Setting
City of Utica Fire Department
City of Utica Department of Urban & Economic Development
NYSDEC
NYSDEC Natural Heritage Program (NHP)
NYSDOT
United States Fish & Wildlife Service (USFWS).
Information sources are referenced throughout the document; full citations are provided at the end of this document.
1.2.2 Permits and Approvals
Construction and operation of the IHC will require the acquisition of discretionary20 and ministerial21 permits and approvals from various state and local jurisdictional agencies. A summary of potential permits and approvals is provided in Table 2.
Table 2. Summary of Potential Permits and Approvals
| Permit/Approval | Activity | Agency | |
|---|---|---|---|
| State | |||
| 1 | Funding Administration, Certificate of Need (CON), Construction Approval, and Operating Certificate | Joint Administration (with DASNY) of project funding approved by New York State Legislature. Review process, mandated under state law, which governs the establishment, ownership, construction, renovation and change in service of specific types of health care facilities including hospitals | NYSDOH |
| 2 | Operating Certificate | Obtain an operating certificate (license) issued by the NYS Office of Mental Health (NYSOMH) prior to the operation of such facilities and programs that are subject to the regulatory jurisdiction of the Commissioner of Mental Health | NYSOMH |
| 3 | Funding Administration | Joint administration (with NYSDOH) of project funding approved by New York State Legislature. Potential conduit debt issuer in connection with any private not-for-profit tax-exempt MVHS bonds issued through DASNY. | DASNY |
| 4 | Air Facility Permit22 | Permit to construct and operate an air emission source. | NYSDEC |
| 5 | SPDES General Permit for Storm Water Discharges from Construction Activity (GP-0-15-002) | Storm water discharges from construction phase activities disturbing one-acre or greater. | NYSDEC |
| 6 | Petroleum Bulk Storage Registrations | Petroleum bulk storage tanks for boilers and emergency generators | NYSDEC |
| 7 | Highway Work Permit | Work within NYS highway right-of-way (ROW). | NYSDOT |
| 8 | Consultation (16PR06600) | Compliance with State & National Historic Preservation Acts | SHPO |
| Local | |||
| 9 | Project Funding | Financial benefits & incentive support | Oneida County Local Development Corporation(LDC) |
| 10 | Potential Property Condemnation/Eminent Domain | Potential condemnation and acquisition of private property within project footprint. | Oneida County Oneida County IDA City of Utica Urban Renewal Agency |
| 11 | Site Plan Review | Review and approval of site plan23 | Utica Planning Board |
1.2.3 New York State Executive Orders and Policies
Environmental Justice
Environmental justice (EJ) is the fair treatment and meaningful involvement of all people regardless of race, color, national origin, or income with respect to the development, implementation, and enforcement of environmental laws, regulations, and policies.24 In March 2003, the NYSDEC issued policy25 to guide the incorporation of EJ concerns into the Department’s environmental permit review process, as well as in their application of the SEQR process. The policy focuses on the integration of public participation in NYSDEC’s permit review process for projects located in potential EJ areas. The policy is written to assist NYSDEC staff, the regulated community and the public in understanding the requirements and review process.
The IHC project area is located in the City of Utica, which has been identified by the NYSDEC as a “Potential EJ Area26.” In addition, as identified in Section 1.2.2, implementation of the project may require several approvals from the NYSDEC, which will require conformance with the NYSDEC’s EJ policy.
Specifically, CP-29 states that where a Potential EJ area is identified by the NYSDEC, the applicant shall submit a written public participation plan as part of its complete NYSDEC application. At a minimum, the plan must demonstrate that the applicant will:
Identify stakeholders to the proposed action
Distribute and post written information on the proposed action and the environmental permit review
process
Hold a public information meeting or meetings to keep the public informed about the proposed action and
the permit review process
Establish an easily accessible document repository or repositories in or near the Potential EJ area
Provide a report or reports which summarize all progress to-date in implementing the plan, all substantive
concerns raised to-date, all resolved and outstanding issues, the components of the plan yet to be
implemented and an expected time line for completion of the plan
Upon completion of the plan, submit written certification that the applicant has complied with the plan and
submit a final report detailing the activities that occurred pursuant to the plan.
A summary of MVHS-sponsored public engagement efforts is provided below.
MVHS-Sponsored Public Engagement Efforts
Since 2015, the project sponsor and/or its team has coordinated and participated in over 130 meetings with
decision-makers and stakeholders. These efforts have complemented additional public engagement and
outreach initiated in conjunction with the on-going SEQR process (see Section 1.2.1). These efforts have included
meetings with the following groups:
St. Elizabeth Medical Center – College of Nursing (Board of Directors)
St. Elizabeth Medical Center – Neighbors Group
Greater Utica Chamber of Commerce (Board)
Local Business Leaders Meeting (with Legislators)
Patient Advisory Council
Association of Block Coalitions (Community Group)
Mohawk Valley Latino Association
Mohawk Valley Center for Refugees
Court Street Children’s Center
Bagg’s Square Association
Community Forum
Utica Common Council
Genesis Group
Resource Center for Independent Living
Mohawk Valley Regional Economic Development Council
Mohawk Valley Water Authority
Westside Senior Center
Wilcor International
Oneida County Healthcare Coalition
Utica Comets/Aud Authority
Oneida County Board of Legislators
Mayor, City of Utica
Oneida County Executive
Women’s Giving Circle
No Hospital Downtown (Leadership)
MVHS Foundation (Board of Directors)
MVHS Patient & Family Advisory Council
East Utica & Cornhill Neighborhood Members
Matt Brewing
Mohawk Valley EDGE
Keeler In the Morning (Radio)
Interfaith Coalition
Talk of the Town (Radio)
Observer Dispatch Editorial Board
Retired St. Luke’s Nurses
Partners in Giving
FSLH Volunteer Association
South Utica Neighborhood Group
Community Foundation of Herkimer and Oneida Counties (Community Foundation)
Office of the Aging Board (Livable Community Steering Committee)
12 MVHS’ application included a completed Part 1 (Project and Setting) of a Full Environmental Assessment Form (EAF), which is included in Appendix C.
13 30-days ending on March 3, 2018. 14 In a letter to Involved Agencies, dated March 8, 2018, the City Planning Board (via the City’s Department of Urban & Economic Development) extended the Lead Agency coordination process from March 3, 2018 to March 23, 2018 (see Appendix C).
15 Discussion on the “no action” alternative includes an evaluation of the adverse or beneficial site changes that may occur in the absence of the proposed actions.
16 Environmental justice is defined as the fair treatment and meaningful involvement of all people regardless of race, color, national origin, or income with respect to the development, implementation, and enforcement of environmental laws, regulations, and policies (http://www.dec.ny.gov/public/333.html).
17 “Interested Agency” means an agency that lacks the jurisdiction to fund, approve, or directly undertake an action but wishes to participate in the review because of its specific expertise or concern about the proposed action.
18 The FAA provides design-related guidance in support of the helipad, but has no approval authority. The helipad design will be reviewed by the City of Utica Planning Board in conjunction with the overall site plan.
19 Also referred to as the State Historic Preservation Office (SHPO).
20 Discretionary decisions are those where there are choices to be made by the decision makers that determine whether and how an action may be taken.
21 A ministerial action is an action performed upon a given state of facts in a prescribed manner imposed by law without the exercise of any judgment or discretion as to the propriety of the act (e.g., a building permit); ministerial
actions are not subject to review under the SEQRA.
22 Proposed emissions may be considered “trivial or exempt activities” (see Section 3.4); a permit or registration may not be required.
23 Installation of a utility/pedestrian bridge over a City street (Columbia Street) will require review and approval by the City Engineer.
24 https://www.epa.gov/environmentaljustice/learn-about-environmental-justice
25 http://www.dec.ny.gov/docs/permits_ej_operations_pdf/cp29a.pdf
26 http://www.dec.ny.gov/docs/permits_ej_operations_pdf/oneidaej.pdf
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