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Making It in New York the MANUFACTURING LAND USE

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Making It in New York the MANUFACTURING LAND USE MMaakkiinngg iitt iinn NNeeww YYoorrkk THE MANUFACTURING LAND USE AND ZONING INITIATIVE VOL. I: REPORT Prepared by The Pratt Institute Center for Community and Environmental Development For The Municipal Art Society of New York June 25, 2001 Making it in New York THE MANUFACTURING LAND USE AND ZONING INITIATIVE VOL. I: REPORT Prepared by The Pratt Institute Center for Community and Environmental Development For The Municipal Art Society of New York Brooklyn, New York May 31, 2001 CONTENTS FOREWORD v ACKNOWLEDGEMENTS vi EXECUTIVE SUMMARY x REPORT SYNOPSIS 1 TOWARD A NEW INDUSTRIAL AND ECONOMIC DEVELOPMENT PARADIGM 1 OBSTACLES FACING MANUFACTURING 2 GENERAL FINDINGS 2 STRATEGIC OVERVIEW 4 RECOMMENDATIONS 5 General Recommendation 5 Land Use and Zoning Recommendations 5 Financial and Technical Assistance Recommendations 7 Environmental Recommendations 7 Data Recommendations 8 BACKGROUND 9 OVERVIEW OF NEW YORK CITY’S ECONOMY 9 OVERVIEW OF MANUFACTURING LAND USE AND ZONING 10 Manufacturing Uses 11 Other Industrial Uses in Manufacturing Zones 12 Vacant and Underutilized Land and Buildings 14 New Uses 14 Mixed Uses 16 Possible New Uses 16 THE STATUS OF MANUFACTURING IN NEW YORK CITY 17 The Benefits of Manufacturing 19 Obstacles Facing Manufacturing in New York City 21 CURRENT MANUFACTURING DEVELOPMENT PROGRAMS IN NEW YORK CITY 31 New York City’s In-Place Industrial Parks (IPIP) 31 Financing & Other Industrial Development Programs 32 Real Estate Assistance Programs 32 Energy Assistance Programs 34 Equipment Purchase Assistance Programs 35 Other Assistance Programs 35 Technical Assistance Organizations 37 NEW YORK CITY’S MIXED USE ZONING POLICY: BALANCING THE MIX 39 Existing Mixed Use Zoning Districts 39 Special Purpose Districts 40 Loft Zoning 40 M1-D Districts 41 Special Mixed Use District (MX) 42 Do Mixed Use Zoning Policies Assist in Manufacturing Retention? 43 Environmental Concerns in Mixed Use Zoning Districts 44 The Manufacturing Land Use and Zoning Initiative CONTENTS MODEL INDUSTRIAL LAND USE POLICIES IN OTHER URBAN AREAS 46 Chicago 46 Portland 47 Seattle 48 San Francisco 48 Pittsburgh 49 Vancouver 49 MANUFACTURING SUSTAINABILITY IN AN URBAN CONTEXT 50 Implementing Performance Standards 53 Opportunities to capitalize on sustainable development 55 Industrial Ecology 56 Eco-industrial Parks 57 GENERAL & SPECIFIC FINDINGS 60 GENERAL FINDINGS 60 General Land Use Findings 60 New York City and Boroughs 60 Study Areas Combined 61 Special Districts 64 Industrial Parks 67 Industrial Land Use and Zoning Policy Findings 68 Model Land Use and Zoning Policies 68 Manufacturing Land Use and Zoning in New York City 70 Mixed Use Zoning in New York City 71 Manufacturing Development Findings 73 Manufacturing Trends 73 Financing and Real Estate 76 Manufacturing Development Programs 77 New York City’s In-Place Industrial Parks (IPIP) 77 Real Estate Assistance Programs 77 Energy Assistance Programs 77 Equipment Purchase Assistance Programs 77 Other Assistance Programs 77 Manufacturing Sustainability Findings 78 SPECIFIC FINDINGS 94 Study Areas 94 STUDY AREA 1: CHELSEA-GARMENT DISTRICT 94 STUDY AREA 2: SOHO-TRIBECA 97 STUDY AREA 3: HUNTS POINT 99 STUDY AREA 4: LONG ISLAND CITY 101 STUDY AREA 5: MASPETH 103 STUDY AREA 6: EAST NEW YORK 105 STUDY AREA 7: GREENPOINT-WILLIAMSBURG 107 STUDY AREA 8: SUNSET PARK-RED HOOK 109 CONCLUSION 111 iii The Manufacturing Land Use and Zoning Initiative CONTENTS RECOMMENDATIONS 113 INTENT AND TIMING OF RECOMMENDATIONS 113 TOWARD A NEW INDUSTRIAL AND ECONOMIC DEVELOPMENT PARADIGM 113 GENERAL RECOMMENDATION 115 LAND USE AND ZONING RECOMMENDATIONS 116 FINANCIAL AND TECHNICAL ASSISTANCE RECOMMENDATIONS 129 ENVIRONMENTAL RECOMMENDATIONS 136 DATA RECOMMENDATION 144 METHODOLOGY 145 Selection of Study Areas 145 SIC Codes 146 Zip Codes 147 DATA SOURCES 147 New York State Department of Labor (DOL) 147 New York City Department of Finance RPAD (Real Property Assessment Database) 147 LotInfo 2000 147 Harris InfoSource 148 Dun & Bradstreet 148 New York City Zoning 2000 148 DATA ANALYSIS 149 Land Use 2000 149 Land Use Changes 1989-2000 150 Manufacturing Jobs and Firms 2000 150 Changes in Manufacturing Jobs and Firms 1992-1999 150 GENERAL LAND USE CODE 152 SPECIFIC LAND USE CODE (Used for Maps) 158 GLOSSARY 165 REFERENCES 170 SCHEDULE OF FIGURES Figure 1: BOROUGH LAND USE SHARE OF NEW YORK CITY 2000 79 Figure 2: BOROUGH BUILDING AREA LAND USE SHARE OF NEW YORK CITY 80 Figure 3: NYC & BOROUGHS LOT AREA PERCENT CHANGE 81 Figure 4: STUDY AREAS LAND USE 2000 82 Figure 5: COMBINED STUDY AREAS LAND USE CHANGE 1989-2000 82 Figure 6: STUDY AREAS & NEW YORK CITY LAND USE CHANGES1989-2000 83 Figure 7: 1989-2000 STUDY AREAS LAND USE CHANGE TO RESIDENTIAL& COMMERCIAL IN M DISTRICTS 84 Figure 8: STUDY AREAS MANUFACTURING FIRMS & JOBS 2000 BY ZONING DISTRICT 85 Figure 9: STUDY AREAS LOT AREA 2000 BY "M" DISTRICT 86 Figure 10: STUDY AREAS “OTHER” USES 2000 87 Figure 11: STUDY AREAS AUTO USES 2000 88 Figure 12: STUDY AREAS AUTO USES LAND USE ACTIVITY 1989-2000 88 Figure 13: COMBINED MIXED USE DISTRICTS LAND USE 2000 89 Figure 14: COMBINED MIXED USE DISTRICTS LAND USE CHANGE 1989-2000 89 Figure 15: MIXED USE DISTRICTS LOT AREA PERCENT CHANGE 1989-2000 90 Figure 16: COMBINED INDUSTRIAL PARKS LAND USE 2000 91 Figure 17: COMBINED INDUSTRIAL PARKS LAND USE CHANGE 1989-2000 91 Figure 18: INDUSTRIAL PARKS LOT AREA PERCENT CHANGE 1989-2000 92 iv FOREWORD The Manufacturing Land Use and Zoning Initiative (the Initiative) is a project launched in 1999 by the Municipal Art Society (MAS) in partnership with Pratt Institute Center for Community and Environmental Development (PICCED) to identify issues and opportunities facing manufacturing districts and mixed-use communities in New York City. The overall goal of the project is to provide the civic community, general public and government officials with information, tools and recommendations for evaluating and guiding both short-term and long-term land use policy in manufacturing districts and mixed-use communities. As a first step, the Initiative has produced a report that provides recommendations on how New York’s zoning and land use policies can be used to retain and revitalize the city’s manufacturing base, where and when it is appropriate to do so. This report: § Provides an in-depth land use analysis of different types of manufacturing areas in New York City using eight case studies to inform recommendations; § Describes manufacturing and mixed-use zoning models found in other cities and evaluates their applicability to New York; § Analyzes existing mixed-use zoning districts and assesses their success based upon their original objectives; § Analyzes problems and opportunities relating to environmental performance in manufacturing and mixed-use areas, provides recommendations for performance-based zoning approaches, and introduces strategies for capitalizing on sustainable manufacturing opportunities; and, § Recommends criteria for the selection of areas that should be retained as industrial districts, and areas that are suitable for rezoning to residential, commercial, transitional, or non-transitional mixed use. A principal aim of the Initiative is to ensure that the findings reflect the insight and advice of a range of stakeholders. To achieve this, the Initiative: § Convened a task force representing a cross-section of representatives from manufacturing businesses, local development corporations, government planning and economic development agencies, and environmental justice groups. This task force served as the advisory body to the study. § Conducted focus groups to gain industry and community input into the study and to develop its recommendations. v ACKNOWLEDGEMENTS The Manufacturing and Land Use Initiative is a joint effort of the Municipal Art Society and the Pratt Institute Center for Community and Environmental Development. It grew out of a series of discussions with the New York Industrial Retention Network and the Industrial Technology Assistance Corporation. A generous Alfred P. Sloan Foundation grant to the Municipal Art Society funded the effort. Their funds were supplemented, in part, by general support funds available to both MAS and PICCED. The initiative was informed by countless numbers of people in the manufacturing, environmental justice, community development, and real estate communities. Their insight, wisdom and recommendations were taken to heart, seriously considered and much of it woven into the methodology and recommendations that follow. It should not, however, be inferred from this that any or all the participants endorse the findings and recommendations contained in this report. To all those that participated and willingly gave of their time, we are indebted. Most importantly, we want to single out each and every one of the team who worked on this study on a daily basis. They were nothing short of terrific. Led by Mercedes Narciso, the team of Leena Shanbhag, Maki Okage and Paula Crespo worked creatively and consistently to produce one of the more thought provoking and stimulating land use and zoning proposals to be put forth in years. Our thanks also to Brian Sullivan and Eva Neubauer Alligood whose advice and contributions were invaluable as well as Nancy Haycock, Mannix Gordon, Rex Curry, Naomi Johnson, Mo Ramsarup and the entire PICCED staff whose support for those of us who were focused on this effort was immeasurable. Finally our thanks to Adam Friedman of the New York Industrial Retention Network, Sara Garretson of the Industrial Technology Corporation, Oliver
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