preserving affordability authenticity - Chinatown Working Group

151 Pages·2013·20.66 MB·English

The Plan for Chinatown and Surrounding Areas
PRESERVING
AFFORDABILITY
& AUTHENTICITY
Recommendations to the
Chinatown Working Group
Pratt Center for Community Development
The Collective for Community, Culture and the Environment
December 2013
The Plan for Chinatown and Surrounding Areas
Project Team
Project Managers Advisors Thank You!
Jocelyne Chait Carol Atlas
Paula Crespo Wendy Fleischer Meta Brunzema and Alihan Polat,
Mercedes Narciso Adam Friedman Meta Brunzema Architects, PC
Tarry Hum Sarah Desmond, Housing
John Shapiro Conservation Coordinators
Leads
Vicki Weiner Moses Gates, Association for Neighborhood
Eve Baron Laura Wolf-Powers and Housing Development
Jenifer Becker Simon Kawitsky, Jonathan Rose Companies
Eva Hanhardt
Community researchers Yue Ma, MOCA
Charles Lai
Greg Mihalko, Partner and Partners
Mandu Sen Xing Lu Chen
Lacey Tauber* Jiaying Lu George Sweeting and Ana Champeny,
NYC Independent Budget Office
Jessica Yager, Furman Center for
Associates Translators
Real Estate and Urban Policy
Isabel Aguirre Elizabeth Griffen
Natasha Dwyer Yichen Tu And all the members of the
Ayse Yonder Jacky Wong
Chinatown Working
Group who contributed so
Research Assistants Report Design
much to this project.
Sarah Almukhtar Rain Saukas
Elana Bulman
Roxanne Earley
Charlotte Kaulen
Sadra M. Shahab
Risa Shoup
Lena Sze
Korin Tangtrakul
Giovania Tiarachristie
Table Of Contents
CHAPTER 1: INTRODUCTION ................................1 CHAPTER 6: SPECIAL CHINATOWN
Chinatown and Surrounding Areas .............................2 AND LOWER EAST RIVER DISTRICT ...................87
Planning Context .................................................................3 Special District and Subdistricts ................................89
Special Chinatown and Lower East River District ......5 Special Characteristics of Subdistricts ....................90
Implementation ...................................................................6 Similar Characteristics
outside the RFP Study Area ........................................96
General Purposes of the Special District ..............100
CHAPTER 2: AFFORDABILITY ................................7
Special District Strategies...........................................100
Key Findings .........................................................................8
Use Modifications ............................................................101
Affordability Goals ............................................................16
Special District Options ...............................................103
Recommendations & Implementation Strategies ....17
Subdistrict Options .......................................................104
Conclusion ..........................................................................118
CHAPTER 3: ECONOMIC DEVELOPMENT ...........23
Additional Recommendations for Adjacent Areas ......114
Key Findings ......................................................................24
Next Steps: Implementation Strategies .................119
Economic Development Goals ....................................30
Recommendations & Implementation Strategies ...30
APPENDIX ............................................................121
1. Affordable Housing Programs ...............................121
CHAPTER 4: CULTURE &
2. Previously Identified Historic
HISTORIC PRESERVATION ....................................35
and Culturally Significant Resources ..................121
Historic and Cultural Context ......................................36
3. Civic Associations and Arts and
Key Findings ......................................................................38
Cultural Organizations in Chinatown .................124
Culture and Historic Preservation Goals .................50
4. Identified Potential Sites of Significance ........125
Recommendations and Implementation Strategies ......50
5. Soft Sites ......................................................................125
6. Recent Sales and Development Activity ..........126
CHAPTER 5: ZONING AND LAND USE ANALYSIS ..59
7. Chinatown Special Districts Outside of NYC .....127
Key Findings ......................................................................60
8. Anti-Displacement Zoning Tools - Other Cities ....127
Case Studies and Zoning Tools ...................................76
9. Other NYC Special Districts .................................130
Summary of Chinatowns in Other Cities ...........76
10. Basic Structure for the Special District ............135
Anti-Displacement Zoning Tools ..........................79
11. Special Chinatown and Lower East River
Inclusionary Zoning to Create and District: Proposed Possible Text Provisions ....135
Preserve Affordable Housing .................................80
12. Glossary ......................................................................143
New York City Special Purpose Districts ...........81
13. Resident Survey .......................................................145
Impact of New York City
14. Meetings ......................................................................145
Rezonings on Affordability .....................................82

1
C H A P T E R
Introduction
This plan is both a celebration of Manhattan’s Chinatown and its surrounding areas
New York City’s rich immigrant are among the oldest immigrant neighborhoods
history and the contributions that in New York City, housing successive groups of
immigrants from Ireland, Germany, China, Italy,
waves of immigrants have made
Puerto Rico and the Dominican Republic, starting
and continue to make to New
in the early 1800s.
York City’s economy and culture,
and a strategy for preserving one These diverse immigrant neighborhoods, with
of the last remaining islands of their historic tenement buildings, vibrant streets-
affordability in a borough that is capes, and affordable housing built for low-income
working class families shed important light on
becoming increasingly unaffordable
New York City’s past but are also a critical compo-
for most New York City residents.
nent in the City’s future.
Chinatown and
Map 1-1: Chinese Concentrations in New York City
Surrounding Areas
Since the mid-1800s when the first Chinese immi-
grants settled in the “Five Points” neighborhood on
the south east side of Manhattan, Chinatown has
been home to multiple generations of immigrants
from different parts of China, with family and district
associations and merchant and civic organizations
providing an essential support network. While cur-
rently one of several Chinese enclaves in New York
City - Flushing, Queens and Sunset Park, Brooklyn
being the other important concentrations – Manhat-
tan’s Chinatown maintains its historic, economic and
cultural preeminence. Ethnically specialized busi-
nesses, and cultural programs and activities not only
serve the local Chinese community but also others
within the city and the region, linked through exten-
sive public transportation and intracity and intercity
bus networks. (Map 1-1)
What sets Chinatown apart from many early im-
migrant neighborhoods in New York City is that it
continues to thrive as a living immigrant community,
with a large concentration of Chinese residents and
Chinese-owned businesses providing local employ-
ment and services.
Chinatown’s surrounding areas include Two Bridges
between the Manhattan and Brooklyn Bridges, with
a diverse population of Black and Latino residents
and, more recently, first and second generation Chi-
nese immigrants; parts of the Lower East Side; and
a significant number of large-scale public housing
developments constructed between the late 1930s and
the 1960s along the Lower East River waterfront. Economic Significance and contributes substantially to New York City’s
tourist economy.
Chinatown’s authenticity is a unique historic and
economic asset to the City. It is what attracts visitors Chinatown and its surrounding areas are also well
from throughout the United States and the world, placed to serve and support Manhattan’s growing
including increasing numbers from mainland China, Healthcare, Science and Technology, and Creative
2 Chapter 1 – Introduction
sectors, with a large local workforce and established Two Cities Planning Context
businesses providing a range of skills and services.
One of the primary themes in Mayor Elect Bill De The Plan for Chinatown and Surrounding Areas,
Local residents have always benefited from China- Blasio’s mayoral campaign was that “New York City developed by the Pratt Center/Collective Partnership,
town’s diverse economy, which provides both skilled has become a Tale of Two Cities.” presents a framework for maintaining affordability
and unskilled job opportunities. In its heyday the for residents and small businesses, creating additional
garment industry provided thousands of jobs to local “We live a Tale of Two Cities. The wealthiest New affordable housing, promoting local employment,
residents, who then spent their earnings in the neigh- Yorkers enjoy a life of luxury, while many working and preserving Chinatown’s rich cultural heritage and
borhood. Although the garment industry has since and retired families can barely pay the rent. At the historic infrastructure, and provides the Chinatown
declined, Chinatown’s restaurants, jewelry stores, gro- very bottom, 50,000 New Yorkers sleep in shelters Working Group with a comprehensive set of tools,
cery stores, restaurant supply stores, and healthcare every night. But the challenge is much greater. information and resources that can be used to achieve
and other services still employ a large number of local Almost half of all New Yorkers spend more than these goals.
residents, resulting in a very high walk to work ratio. 30 percent of their income on housing — and
Up to 45% of employed residents in the Chinatown one-third of households spend at least half on Implementation strategies that accompany each rec-
core walk to work. housing…. ommendation in the plan provide guidance to CWG’s
CAPZ and Economic Development Working Teams,
Threats In 10 years, New York City has lost nearly as many reconvened as “Action Groups,” both for advancing
affordable apartments as it has built or preserved. numerous stand-alone affordability, economic devel-
Encroaching, speculative market rate development, Gentrification, unscrupulous landlords, and the opment, arts and culture, and historic preservation
primarily consisting of hotels and luxury condomini- real estate lobby’s hold on government have pulled recommendations, and moving forward in develop-
ums, and rising property values threaten the loss of tens of thousands of apartments out of rent stabili- ing and submitting a 197-c zoning application for a
this vibrant, mixed-use, affordable urban environ- zation, and more are lost every year.” 1 Special Zoning District.
ment and of the low- and moderate-income residents
and small businesses that have inhabited and worked Mayor Elect De Blasio stated a strong commitment Planning History
in these neighborhoods for generations. While to affordability in his campaign, noting that “…new
development and growth are important for the city as buildings aren’t exclusively for the wealthy…..and that This plan builds upon a five year community plan-
a whole, the wave of gentrification that is consuming the fundamental rights of tenants must be protect- ning process initiated in response to the 2008 East
many older neighborhoods, particularly in Manhat- ed….” and proposing to “…build or preserve nearly Village / Lower East Side Rezoning and fears that in-
tan, has severe implications for the City in terms of 200,000 affordable units, and help both tenants and creased development pressure on Chinatown and its
affordability, displacement and increasing economic small landlords preserve the quality and affordability surrounding areas as a result of the rezoning would
segregation. Unfortunately, despite substantial incen- of their homes.” lead to residential and commercial displacement, and
tives very few developers have taken advantage of the loss of significant historic and cultural assets. The
City’s voluntary inclusionary housing program and Supporting and strengthening established low and Chinatown Working Group (CWG), created in late
few affordable units have been developed. moderate-income neighborhoods such as Chinatown 2008 at the start of this process, comprises over 50
and its surrounding areas and promoting affordability member organizations, including civic, community
throughout the city would go a long way toward ad- and cultural organizations, Community Boards 1, 2,
dressing residential and socio-economic segregation and 3 and other stakeholders.
in New York and achieving these goals.
Eight Working Teams, established as part of the
planning process, were assigned the task of develop-
ing Preliminary Action Plans (PAPs) for affordability;
cultural and historic preservation; education and
Chapter 1 – Introduction 3
Map 1-2 RFP Study Area and Context Area
Map1-2: RFP Study Area and Context Area ment and the Collective for Community, Culture and
the Environment (CCE) responded to a Request for
RFP study area Proposals (RFP) issued by the CWG in February 2013
West CD 6 for a consultant to develop recommendations and im-
Context area Village
plementation strategies for the CAPZ and Economic
Community district boundary
Stuyvesant Development PAPs, which remained unfinished, and
Community District 3 Town consolidate them into a comprehensive community
CD 2
plan and rezoning proposal. The Plan for Chinatown
and Surrounding Areas builds upon the extensive
amount of work that has already been completed
Greenwich by the CAPZ and Economic Development Working
NoHo
Village East Teams, and is guided by the underlying values and
principles that have shaped their work to date.
Village
RFP Study Area and Context Area
SoHo
Tribeca
The study area boundaries for this project were
CD 3
Little provided in the Request for Proposals. They include
Italy portions of Manhattan Community District 3 (CD3)
Lower
and Manhattan Community District 1 (CD1). The
East
RFP Study Area encompasses a number of sub areas
Side
Civic that have both specific similarities and unique char-
Center acteristics, including the historic Chinatown core,
Chinatown
CD 1 areas immediately south and east of the East Village
/ Lower East Side rezoning area, the east side of the
Bowery up to 9th Street, the area abutting the courts
and municipal district south of Canal Street on the
west, and the Two Bridges neighborhood and a large
section of the lower East River waterfront occupied
Financial
by NYCHA and other large scale housing develop-
District 0 ¼ ½ ¾ 1 mile
ments to the south and east. (Map1-2) These areas are
Source: NYC DCP discussed in detail in Chapters 5 and 6. A small sec-
tion of Community District 2 (CD2) north of Canal
schools; economic development and revitalization; Four of the PAPs have been completed and approved Street, between Broadway and the Bowery, which was
immigrant affairs and social services; parking, by the CWG to date: Education and Schools (De- originally included in the RFP Study Area, has since
transportation, circulation and security; parks, open cember 2010); Immigrant Affairs and Social Services been removed.
space and recreation; and zoning. These plans would (December 2010); Parks, Open Space and Recreation
ultimately form the basis of a comprehensive plan (December 2010) and Parking, Transportation, Cir- Affordable Housing, Economic Development, Cul-
or rezoning action. Three of the Working Teams - culation and Safety (July 2011). ture and Historic Preservation, and Zoning recom-
Cultural and Historic Preservation, Affordability, and mendations and strategies are confined to the RFP
Zoning - were subsequently combined into one: Cul- The Pratt Center/Collective Partnership, a collabora- study area. Some additional zoning recommendations
ture, Affordability, Preservation and Zoning (CAPZ). tion between Pratt Center for Community Develop- extend to adjacent areas with similar land use, built
4 Chapter 1 – Introduction
form and socio-economic characteristics. not a formal survey it did confirm a number of issues and Historic Preservation findings and recommen-
facing residents of Chinatown and its surrounding dations are presented in Chapters 2, 3 and 4. Imple-
A broader “context area,” encompassing all of CD3 areas. Up to 45% of respondents reported an annual mentation strategies accompanying each recommen-
and parts of CD1 and CD2, provided the framework income of less than $25,000. The three most frequent- dation suggest a fair amount of overlap between issue
for much of the research and analysis conducted by ly cited concerns were cost of housing; loss of small/ areas and the need for coordination among CWG’s
the project team. The report on this work, Draft Task local businesses; and cost of goods and services. Up member organizations and Action Groups.
2 Report: Research and Analysis can be found on the to 65% of respondents said they had friends or family
CWG website, along with other reports, presentations that had left the neighborhood even though they These linkages become truly apparent in the Land
and materials related to the project. (See www.china- wanted to stay. 44% of these respondents were Asian Use and Zoning Analysis (Chapter 5), which
townworkinggroup.org) or Asian-American. describes key land use findings in the RFP Study
Area as well as affordability, economic development,
Planning Process In addition to scheduled presentations at CWG’s culture and historic preservation, and environmental
monthly meetings, the project team held numerous findings that have potential implications for zoning,
The Plan for Chinatown and Surrounding Areas was one-on-one meetings with individual CWG member and in the Special Chinatown and Lower East River
developed through a participatory process aimed at organizations, targeted meetings with Culture and District, presented in Chapter 6, where they are inte-
reconciling a wide range of different interests within Historic Preservation team members and a series of grated into a comprehensive rezoning strategy.
the CWG and developing a balanced approach to intensive zoning workshops with CWG members
Special Chinatown and
preservation and development in the area that maxi- that helped to inform the recommendations. Three
Lower East River District
mized opportunities for affordable housing. presentations were made to NYCHA tenants.
The overall planning process was roughly divided The team also met with Council Member Margaret Development of a Special Zoning District for China-
into three components: Task 1, Task 2, and Task 3, Chin and her staff and the leadership and staff of town and surrounding areas that would form the ba-
with Task 1 focusing on review and consideration of CB1, CB2 and CB3, and made two presentations to sis of a 197-c zoning action was a major requirement
all of CWG’s PAPs; Task 2 devoted to research and CB3’s Land Use Committee. A number of exploratory in CWG’s RFP and is the primary objective of this
analysis of existing conditions; and Task 3, devel- meetings were held with several New York City agen- plan. The boundaries of the proposed Special China-
opment of recommendations and implementation cies as recommendations and implementation strate- town and Lower East River District, as shown in Map
strategies. gies were being developed, including the Department 1-3 correspond with the RFP Study Area boundaries.
of Housing Preservation and Development and the
A Town Hall meeting held on June 26 to present Department of City Planning. A full list of meetings While a number of overarching provisions apply
research findings, and a Community Workshop held is provided in Appendix 14. throughout the Special District, specific characteris-
on August 22 to discuss recommendations and strat- tics and conditions that exist in different parts of the
egies provided opportunity for additional community Integrated Planning and RFP Study Area call for the establishment of seven
input. Both events were held at PS 131. Much of the Zoning Strategy Subdistricts, shown below and on the map, with ad-
material presented at these events was available in ditional provisions responding to the challenges and
Chinese and Spanish as well as English and interpret- The Plan for Chinatown and Surrounding Areas is opportunities in each.
ing was provided in both languages. built upon an integrated planning strategy that recog-
nizes the interrelationships that exist between afford- Although not included in the Special District, Rec-
A questionnaire distributed at the Town Hall and the ability, economic development, arts and culture, and ommendation Area 1 (Special Little Italy District),
Community Workshop and by several CWG member historic preservation and how these relate to land use, Recommendation Area 2 (North of Preservation
organizations provided additional opportunity for in developing a plan that includes both an integrated Subdistrict A), and Recommendation Area 3 (North
public comment. Up to 179 responses were received, zoning proposal and stand-alone recommendations. of East Broadway) have certain similar characteristics
56 of them in Chinese (Appendix 13). While this was Affordability, Economic Development and Culture in terms of built form, land use, tenure and income
Chapter 1 – Introduction 5
Implementation
Map 1-3: Special District and Subdistrict Boundaries
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that warrant the same recommendations. Subdistrict A: Preservation Area assistance that may be needed to shepherd the Special
Zoning District/Subdistricts through City Plan-
Subdistrict B: Planned Community Preser-
Chapter 6 provides a full description of the proposed ning and the Uniform Land Use Review Procedure
vation and Resilience Area
Special District and Subdistricts as well as the various (ULURP) and advance other recommendations.
Subdistrict C: Higher Density Mixed Use
options that CWG needs to consider in moving
forward. Subdistrict D: Lower East River Waterfront Notes:
Subdistrict E1: Bowery Corridor -
1. From Bill De Blasio’s vision for New York and framework
Grand to Bleecker for addressing economic inequality: “One New York, Rising
Together”
Subdistrict E2: Bowery Corridor - Bleecker
to East 9thStreet
Subdistrict F: Under Bridge Gen-
eral Services
6 Chapter 1 – Introduction