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Hospital Infrastructure Resiliency and Floodproofing Upgrades

Solution Overview

NYC Health + Hospitals implemented comprehensive resiliency upgrades across multiple hospital facilities following Hurricane Sandy, including installation of backup power systems, elevation and hardening of building systems, and floodproofing of lower levels.[1][2][3] These infrastructure improvements protect critical healthcare facilities serving over one million people annually from coastal flooding, storm surge, and extreme weather events.[12] The health system secured approximately $1.8 billion from the Federal Emergency Management Agency (FEMA) for these resiliency projects across four primary facilities affected by Hurricane Sandy.[6]

Technical Components

The resiliency infrastructure includes perimeter flood walls varying in height from 8 feet to 12 feet with integrated flood gates consisting of swing, sliding, and vertical lift configurations.[4][10] At Bellevue Hospital Center, the existing perimeter flood wall was raised to an elevation of 17.5 feet NAVD88 by adding concrete to the top of the existing wall, with 13 flood gates installed at openings and 11 air intake louvers on the west side of the Main Hospital Building elevated to the same height.[4] The flood wall's structural integrity is composed of corrugated sheeting drilled 45 feet underground along the 1800 LF site perimeter wall.[9] Electrical systems were elevated and hardened, with backup generators installed to ensure operations can continue for at least 72 hours during power outages.[1][2] At Bellevue, a new 2.5-megawatt generator was installed on the roof of the Main Hospital Building, fueled by natural gas with a 10,000-gallon diesel fuel backup.[4] The Ruth Bader Ginsburg Hospital features hurricane-resistant glass curtain wall systems designed to withstand high winds and flying debris on upper floors, while mechanical equipment floors are strategically elevated on the fifth level above projected flood levels with insulated metal panel-clad curtain wall assemblies.[7] Critical infrastructure on the first floor, including elevators and machine rooms, is protected via concealed fabric and aluminum-plank flood barriers.[7] Below-grade walls were waterproofed at multiple facilities, and stormwater detention systems were upgraded to manage extreme rainfall events.[4][10]

Implementation Details

A total of 30 resiliency projects were initiated across the four primary affected facilities following Hurricane Sandy in 2012.[6] The Metropolitan Hospital Flood Wall Resiliency Project was initiated by NYCEDC and NYC Health + Hospitals in 2016 to address flooding vulnerabilities given the hospital's close proximity to the East River and growing climate risks of coastal storm surge and extreme rainfall.[10] NYCEDC, NYC Health + Hospitals, and Gilbane Building Company celebrated the completion of the Flood Wall at NYC Health + Hospitals/Metropolitan on December 4, 2024.[9] Gilbane provided construction management at-risk services for the new flood protection system at Metropolitan Hospital's 360,000 SF campus spanning four city blocks, delivering the upgrades on schedule and under budget while exceeding minority and women-owned business participation goals.[9][10] FEMA allocated $120 million for Metropolitan Hospital Center in Manhattan, including almost $7 million for electrical repairs and $109 million for a flood wall that protects critical infrastructure on the campus to the 500-year flood level.[3] The Federal Emergency Management Agency funded the $112 million project, which includes the construction of a perimeter flood wall and an upgraded storm water detention system.[10] At Coler Specialty Hospital on Roosevelt Island, FEMA allocated $181 million, including replacement of a generator that was destroyed, reimbursement for repairs already completed to the electrical system, and a flood wall that protects critical parts of the campus to the 500-year flood level.[3] Design for the NYC H+H/Coler flood mitigation project began in March 2024, with schematic design submitted and reviewed with RIOC in Summer 2024.[8] The facility is currently surrounded by temporary flood barriers, which serve as a critical line of defense against potential flooding events.[8] Construction of the new Ruth Bader Ginsburg Hospital was funded by $923 million from FEMA and includes upgrades to the rest of the health care campus, including a 4-foot wall to withstand a 500-year storm and flood-resilient power, heating, cooling, and water systems.[5] The $923 million Ruth Bader Ginsburg Hospital opened in May 2023, offering services to nearly 875,000 residents of South Brooklyn and nearby neighborhoods.[1] Turner Construction Company, in a joint venture with McKissack & McKissack, completed the FEMA-funded project in 2022, which included new construction of a 10-story 360,000 sq. ft. addition, 40,000 sq. ft. of interior renovations, a new floodwall encircling the campus, and the demolition of damaged structures.[11] The at least $1.6 billion FEMA package includes reimbursement for repairs to HHC facilities for damage incurred during Hurricane Sandy, and funds for mitigation projects that protect the hospitals from the impact of future extreme weather, in addition to the $142 million HHC already received from FEMA for emergency stabilization measures, partial repairs, and temporary flood barriers.[3]

Benefits and Impacts

The protective measures prevent future flood waters from reaching hospital facilities, minimizing damage to infrastructure and allowing facilities to remain operational during hurricane and super storm events.[10] The innovative flood wall enables Metropolitan Hospital to withstand a one-in-500-year storm event.[9] At Coney Island Hospital, a new 1,720-foot flood wall protects critical services on the current part of the campus to the level of a 500-year flood.[3] The new emergency department at Ruth Bader Ginsburg Hospital is double the size of the current space and located on the second floor to sustain flooding and ensure continuity of care during natural disasters.[5] New generators and quick connect systems allow facilities to operate in a power outage for at least 72 hours.[2] For PAAP projects in New York, for every dollar spent on repair and restoration efforts, an additional $.85 has been spent on mitigation measures incorporated into the projects, nearly double the $.44 for non-PAAP permanent work grants.[12] The project delivered a comprehensive flood mitigation system at Metropolitan Hospital, including three new structures and multiple below-grade utility tunnels, in addition to the renovation of the NYC/NY State Emergency Management Chempack Room.[9] Improvements were made to protect loading docks, harden the Mental Health Building walls, and relocate hospital medical supply services.[10] Construction teams installed new lighting, erosion controls, fire protections, and security enhancements.[10] The resiliency upgrades reduce the impact of heavy rain, strong winds, and storm surge on hospital facilities that are critical to the more than one million people who are served every year by this healthcare system.[12]

Climate Adaptation Relevance

These infrastructure improvements directly address the flooding vulnerabilities that caused severe damage during Hurricane Sandy in October 2012, when the most significant physical damage and serious flooding occurred at three of NYC Health + Hospitals' acute care hospitals—Bellevue, South Brooklyn Health, and Metropolitan—and Coler, a long-term care and rehabilitation facility.[10] The project protects the hospital campus from significant flooding caused by heavy rain and storm surge, which are becoming increasingly common.[10] The proposed action is needed to ensure that Bellevue Hospital Center can continue to provide critical medical services to the community during and after future flood events.[4]

Business Analysis

NYC Health + Hospitals operates an overall footprint of 20 million square feet in over 75 buildings with over 1,000 pieces of mechanical equipment such as boilers, generators, air handling units, and elevators.[2] The Climate Resilience Plan recommends a series of infrastructure projects, including installation of additional emergency generators linked to critical HVAC equipment, improving the drainage capacity of roofs and windows, building additional flood barriers, and installing green infrastructure to reduce ponding and heat island effect.[2] Utility recommendations include assessing generator capacity and increasing capacity where needed, ensuring critical HVAC equipment is connected to back-up generators, and elevating and/or floodproofing critical equipment located below ground and on ground level if located in a flood zone.[2] Site recommendations include constructing flood barriers and/or stormwater detention systems to prevent flooding during extreme weather events, and installing porous pavement and/or green infrastructure to mitigate ponding, such as bioswales and rain gardens.[2] Building enclosure recommendations include improving drainage capacity of roof membranes and windows, and replacing roof membranes, windows, and building facades at end of useful life to mitigate against wind-driven rain, improve energy efficiency, and enhance patient and staff comfort.[2] Senator Chuck Schumer helped secure a large FEMA grant for NYC Health + Hospitals in the aftermath of Sandy, which seeks to protect the City's most vulnerable public hospitals from coastal flooding.[8] FEMA determined on September 10, 2014, that the proposed flood mitigation action at Bellevue Hospital Center will not have a significant adverse impact on the environment.[4] A public notice of the availability of the Environmental Assessment for the Bellevue Hospital Center flood mitigation project was published in the New York Post on August 14, 2014, with the public comment period ending on August 29, 2014.[4]

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