NYC Zoning Handbook:
Special Zoning Districts
Chapter 11
The most widely used affirmative zoning technique is special district
zoning. This technique permits areas with unique characteristics to
flourish rather than be overwhelmed by standard development. The City
Planning Commission has established special zoning districts to achieve
specific planning and urban design objectives in a limited area. Each
district stipulates requirements and/or provides zoning incentives for
developers who provide the specific urban qualities the Commission seeks
to promote in that area. It is a way of using private capital to carry
out public policy.
Special Atlantic Avenue District (Brooklyn)
The Special Atlantic Avenue District was created to preserve the scale
and character of Atlantic Avenue, including certain architectural
features of the buildings. The special district provides flexibility in
arranging building bulk, mandates street-level commercial uses and
establishes design guidelines for renovation and new construction.
Demolition of buildings is prohibited in the district except in the case
of unsafe buildings, or to make way for a new development for which a
building permit and financial commitments have been secured. To improve
the visual character of the avenue, special sign regulations are imposed
for commercial establishments.
Special Battery Park City District (Manhattan)
The Special Battery Park City District was created to govern extensive
residential and commercial development in an area close to the business
core of Lower Manhattan in accordance with a master plan for Battery
Park City.
The centerpiece of the master plan is the office complex. To the north
and south of this complex are two large residential neighborhoods with
street-level retail uses. One major element of the plan is a continuous
esplanade providing public access to the Hudson River waterfront. The
district contains special design controls with respect to floor area
ratio, required building walls and permissible building height.
Special Bay Ridge District (Brooklyn)
The Special Bay Ridge District was established to protect the existing
scale and character of the Bay Ridge community. The special district
distinguishes the scale of development in the midblock from that on the
avenue frontage. The midblock street zone encourages two- and
three-family homes with a maximum height of three stories. The Avenue
Zone encourages the rehabilitation of existing structures and limits new
development to a six- to eight-story maximum. Special setbacks, curb
cuts, open space, tree planting and ground floor commercial requirements
have been included to preserve the character of the existing street wall
both along the avenues and side streets.
Special City Island District (the Bronx)
The Special City Island District was adopted to preserve the nautical
uses and low-rise residential character of City Island.
The special district regulations restrict the size and illumination of
business signs, limit building heights to three- to five-stories and
ensure adequate parking. The only commercial and manufacturing uses
permitted are those which reflect the nautical flavor of the island or
serve the retail needs of the residents.
Special Clinton District (Manhattan)
The Special Clinton District in Manhattan was created to preserve and
strengthen the residential character of the community, maintain the
mixture of income groups present in the area and ensure that Clinton is
not adversely affected by new development.
Special Coney Island Mixed Use District (Brooklyn)
The Special Coney Island Mixed Use District was established to stabilize
residential development while protecting the area's industrial base. The
district allows limited new residential infill and requires special
permits for large new industrial developments. Existing residential
buildings are allowed enlargements, alterations and repairs, and
construction of new residential buildings is allowed if the buildings
are next to an existing residential or community facility use. New
manufacturing is limited to certain light industries compatible with
residential uses.
Special Franklin Street Mixed Use District (Brooklyn)
The Special Franklin Street Mixed Use District was established to
achieve a balance between residential and industrial uses by remapping
the area from an M1-1 district to an R6 (M1-1) district. The district
allows residential and community facility uses according to R6 district
regulations. All existing industrial uses may expand by 3,000 square
feet, or 50 percent, whichever is less. A larger expansion may be
granted by special permit from the City Planning Commission.
A new use group, Use Group M, has been established which allows light
industries and commercial uses in Use Groups 6, 7, 9 and 11 to occupy
vacant storefronts.
Special Fulton Mall District (Brooklyn)
The Special Fulton Mall District in Downtown Brooklyn was established to
create an attractive shopping environment as part of a city street mall
plan. Special retail use, sign, facade and circulation improvement
regulations are provided. A special assessment district has been
created, through state legislation, to maintain the mall.
Vehicular traffic (except buses) is prohibited within the mall. Major
public amenities required within the district include: improved transit
access, street furniture, street lighting, tree planting and special
treatment of the sidewalks and roadbeds.
Special Garment Center District (Manhattan)
The Special Garment Center District was created to maintain the
viability of apparel production in selected midblocks in the city's
Garment Center by creating a Preservation Area within which the
conversion of manufacturing space to office use is restricted.
Conversion to office use in the Preservation Area is permitted only by
certification of the City Planning Commission that an equal amount of
comparable floor area has been preserved for specified manufacturing
uses. The legality of this special district is currently being
litigated.
Special Grand Concourse District (the Bronx)
The Special Grand Concourse District was created to protect the
distinctive art deco composition and scale of the Grand Concourse by
establishing bulk and design regulations and limiting commercial uses to
designated locations that will not conflict with the boulevard's
traditional residential character. The district consists of a
Residential Preservation Area and three commercial sub-areas. New
construction must conform to R8X (Alternate 1) guidelines.
Special Greenwich Street Development District (Manhattan)
The Special Greenwich Street Development District was established to
foster and promote the orderly expansion of commercial development in an
area of Lower Manhattan adjacent to Battery Park City and the World
Trade Center.
This district attempts to implement an integrated plan for improved
pedestrian and vehicular circulation and to encourage development of a
variety of retail and service establishments to meet the needs of the
area's working population. This is accomplished through a series of
pedestrian circulation improvements and certain lot improvements in the
district for which floor area bonuses are offered.
Some unique features of this district are its provisions for involving
both the developer and appropriate public agencies in the construction
of certain pedestrian circulation improvements.
Special Hillsides Preservation District (Staten Island)
The purpose of the Special Hillsides Preservation District is to
preserve the hilly terrain and unique natural features of Staten Island
by reducing hillside erosion, landslides and excessive storm water
runoff. The primary concept for regulating development under this
special district is the slope coverage approach: as the development site
becomes steeper, the permitted building coverage decreases, but the
permissible floor area on the site remains the same.
Special Hunters Point Mixed Use District (Queens)
The Special Hunters Point Mixed Use District was created to permit
limited as-of-right status for the enlargement/alteration of existing
residential buildings and for new infill residential construction. All
residential and community facility uses are subject to R5 district
regulations. In some cases, a special permit is required for certain
residential and community facility uses. New manufacturing and
commercial uses, or enlargement of existing buildings containing such
uses, are allowed as-of-right as long as these developments or
enlargements contain no residential uses and do not cause significant
adverse environmental impacts. Such new developments or enlargements
must meet M1 district performance standards.
The Special Court Square Subdistrict has been created within this
special district to encourage high density commercial development in an
area well-served by the subway system.
Special Jacob K. Javits Convention Center District (Manhattan)
The Special Jacob K. Javits Convention Center District was established
to enhance the pedestrian configuration and appearance of the area
surrounding the Jacob K. Javits Convention Center. It is intended to
promote new development compatible with the Convention Center by
mandating street walls, and streetscape improvements which supplement
the underlying zoning district regulations.
Pedestrian circulation improvements consist of landscaped sidewalk
widenings and through-block walkways, street trees and retail frontage
along Eleventh Avenue. Height and setback regulations govern all new
buildings along Eleventh Avenue, the streets surrounding the Convention
Center Plaza, and the through block walkways. Mandated street wall
setbacks and sky exposure planes regulate the distribution of building
bulk to define the public spaces on which they front and frame the edges
of the Plaza.
Special Limited Commercial District (Manhattan)
The Special Limited Commercial District attempts to preserve the
character of commercial areas within historic districts by restricting
commercial uses to those uses compatible with the historic district, and
by mandating that all commercial uses be in completely enclosed
buildings. In addition, limitations are also set for the size and
illumination of signs within the special district. One such special
district has been mapped in Greenwich Village.
Special Lincoln Square District (Manhattan)
The Special Lincoln Square District was established to enhance the
character of the area surrounding Lincoln Square as an international
center for the performing arts. The district mandates the height of
building walls along certain streets and the placement of arcades and
types of commercial use at street level as a means of guiding the
orderly redevelopment of the Lincoln Square area. The district
accomplishes its objectives by offering special floor area bonuses by
special permit from the City Planning Commission for new development
that includes the following public amenities: mandatory arcades,
subsurface concourse connections to subways or subway improvements, and
lower-income housing as set forth in the provisions of Inclusionary
Housing.
Special Little Italy District (Manhattan)
The Special Little Italy District was established to preserve and
enhance the historic and commercial character of this community. Special
use regulations protect the retail area along Mulberry Street. Other
regulations encourage residential rehabilitation and new development on
a scale consistent with existing buildings, discourage the demolition of
noteworthy buildings, and increase the number of street trees in the
area.
Special Lower Manhattan Mixed Use District
The Special Lower Manhattan Mixed Use District was enacted to permit
limited residential development in an otherwise industrial 62-block area
in Manhattan south of Canal Street. That portion of the district which
is mapped as an overlay on existing manufacturing zones permits certain
older manufacturing buildings to be converted to loft dwellings and
joint living-work quarters for artists. Where the district is mapped as
an overlay on existing commercial zones, new contextual residential
development is also permitted. At the same time, retention of the
underlying zoning protects the economic vitality of this area.
Special Madison Avenue Preservation District (Manhattan)
The Special Madison Avenue Preservation District is intended to preserve
and reinforce the unique character of Madison Avenue and the surrounding
area (from 61st to 96th streets). Bulk and street wall height provisions
limit the height of new development to the scale of existing buildings,
require a continuous building facade along Madison Avenue, mandate
continuous ground floor development of selected list of appropriate
shops, and require the provision of usable recreation space at rooftop
levels. Within this district the maximum permissible floor are ratio is
10.0. Since building height is limited, greater building coverage is
allowed.
Special Manhattan Bridge District
The Special Manhattan Bridge District was established to preserve the
residential. character of this Lower Manhattan community, to minimize
residential relocation on development sites and to provide for selective
demolition and rehabilitation of existing buildings. A special floor
area bonus is allowed for the provision of new community facility space
and/or dwelling units for low- and moderate-income families. Within this
district it is possible to transfer development rights from a site
containing existing buildings to a new development. The district
mandates that street trees be planted in connection with a new
development. Unless renewed, this district will lapse September 1, 1991.
Special Manhattan Landing Development District
The Special Manhattan Landing Development District guides off-shore
development from Battery Park to the Manhattan Bridge along the East
River. This district is under review.
Special Midtown District (Manhattan)
The Special Midtown District was
established to guide all development within the midtown central business
district. The special district includes three areas of special concern
that are subject to additional regulations. These subdistricts are: the
Theatre Subdistrict, the Preservation Subdistrict and the Fifth Avenue
Subdistrict.
The Special Midtown District has a base FAR of 15.0 along avenue
frontages and an FAR of 12.0 in the midblocks. The base FAR in the
Preservation Subdistrict is 8.0 in order to restrict development on the
side streets surrounding the Museum of Modern Art. The base FAR of the
Theatre Subdistrict core (on Broadway and Seventh Avenue frontages
around Times Square) is set at 14.0 FAR, the FAR in the midblocks
between Sixth and Seventh Avenues is set at 12.0 and the FAR in the
midblocks between Broadway and Eighth Avenue is 10.0.
The core of the Theatre Subdistrict has the highest concentration of
legitimate theaters and entertainment-related uses. The Theatre
Subdistrict requires a City Planning Commission special permit for
demolition of any of the 44 legitimate theaters that are not designated
landmarks.
The Theatre Subdistrict has special use and signage
requirements (in keeping with the character of the area). A flexible
development rights transfer provision has been established for the
preservation of landmark theaters. In the Theatre Subdistrict, a new
building above a certain size must reserve at least five percent of its
floor space (not FAR) for entertainment and theater-related uses. Areas
located outside the Preservation Subdistrict and the Theatre Subdistrict
are eligible for an as-of-right FAR bonus for urban plazas,
through-block galleries and theater retention. The only bonus available
in the Theatre Subdistrict core is the City Planning Commission special
permit bonus for rehabilitation of listed theaters. The Preservation
Subdistrict is not eligible for any floor area bonus. Other remaining
areas can receive a floor area bonus for subway station improvements and
for rehabilitation of theaters.
Certain urban design features, such as continuity of street wall and
retail uses, off-street relocation of existing subway stairs, and
provision of on-site pedestrian circulation spaces are mandated. The
special district also includes certain use and signage controls for the
Fifth Avenue and Theatre Subdistricts. Special daylight evaluation
criteria are included to ensure the availability of light and air on
midtown streets. The Special Midtown District represents a shift away
from discretionary zoning to more predictable, as-of-right development.
Special Natural Area District (the Bronx, Queens, Staten Island)
The purpose of the Special Natural Area District is to preserve unique
natural characteristics, such as aquatic, biologic, geologic and
topographic features having ecological and conservation values, by
reviewing all new developments and site alterations on primarily vacant
land. Natural features are protected by limiting modifications in
topography, by preserving tree, plant and marine life, and natural water
courses, and by requiring clustered development to maximize the
preservation of natural features.
Under the regulations of the special district, the City Planning
Commission must certify that all new development in mapped natural area
districts meets applicable preservation standards.
Special natural area districts have been mapped in the Greenbelt and Von
Briesen Park areas of Staten Island, in Riverdale and in Fort Totten.
These areas are endowed with steep slopes, rock outcrops, creeks, and a
variety of botanic environments.
Special Northside Mixed Use District (Brooklyn)
This mixed use district is designed to meet the needs of a neighborhood
where housing and industry co-exist. The City Planning Commission
selectively mapped mixed use areas -- R(M) when the area is primarily
residential and M(R) when it is industrial -- to allow controlled
residential or light manufacturing expansion where such uses can grow
and function without conflict.
R(M) and M(R) districts combine the regulations for R6 and M1 areas. In
an M(R) district, manufacturing uses are permitted to develop in the
same manner as in any other M1 district. Existing residences may be
enlarged and new residential construction is permitted as-of-right on
blocks that are already primarily residential. New residential
construction is permitted on certain other sites after approval of a
special permit by the City Planning Commission.
In an R(M) district, residential uses are permitted to develop in the
same manner as in any other R6 district. Limited expansion of selected
light industries that do not conflict with residential uses is
permitted. Other industries become non-conforming and are allowed to
remain but not to expand. New industrial development requires a special
permit from the Commission.
Special Ocean Parkway District (Brooklyn)
The purpose of the Special Ocean Parkway District is to strengthen the
existing character and quality of the community and to enhance the
scenic landmark designation of Ocean Parkway in Brooklyn. All new
community facility developments or enlargements are limited, except by
special permission, to the residential bulk regulations of the
underlying districts. All developments with frontage on Ocean Parkway
are required to provide a 30-foot unobstructed front yard, subject to
limitations on paving and landscaping, thereby preserving the character
envisioned by the original designer of the parkway. Accessory off-street
parking for all new developments must be completely enclosed and all new
developments along Ocean Parkway are required to provide street trees.
Special Park Improvement District (Manhattan)
The Special Park Improvement District was created to preserve the
character and architectural quality of Fifth and Park Avenues. It limits
the height of new buildings to 210 feet or 19 stories, whichever is
less, and mandates street wall continuity.
Special Planned Community Preservation District (the Bronx, Manhattan,
Queens)
The Special Planned Community Preservation District designation protects
the unique character of well-planned communities that have been
developed as a unit. Those communities characteristically have large
landscaped open spaces and a superior relationship of buildings, open
spaces, commercial uses, and pedestrian and vehicular circulation. In
many cases, they have been threatened by development pressures. No
demolition, new development, enlargement or alteration of landscaping or
topography is permitted within the district except by special permit of
the City Planning Commission. Preservation districts have been mapped in
Sunnyside Gardens, Fresh Meadows, Parkchester and Harlem River Houses.
Special Scenic View District (Brooklyn)
The Special Scenic View District is intended to prevent obstruction of
outstanding scenic views as seen from a public park, esplanade or mapped
public place. No buildings or structures are allowed to penetrate a
scenic view plane except by special permit of the City Planning
Commission. To protect the waterfront view of the Lower Manhattan
skyline, Governors Island, the Statue of Liberty and the Brooklyn
Bridge, a special scenic view district has been mapped for the area west
of the Brooklyn Heights Esplanade.
Special Sheepshead Bay District (Brooklyn)
The Special Sheepshead Bay District was devised to encourage development
that will strengthen and protect the neighborhood's unique waterfront
recreation and commercial character. In the area immediately north of
the fishing fleet wharves, commercial uses are restricted to uses that
support waterfront and tourist-related activities.
All new development along Emmons Avenue must provide widened sidewalks,
street trees, and plazas which may contain sitting areas, landscaping,
kiosks and cafes. Floor area bonuses are provided for plazas, arcades,
usable residential open space and additional accessory commercial
parking. Special density and height limits have been established. This
district is under review.
Special South Richmond Development District (Staten Island)
The Special South Richmond Development District was established to guide
development of predominantly vacant land in the southern half of Staten
Island. The special district maintains the densities established by the
underlying zones and ensures that new development is compatible with
existing communities.
To maintain the existing community character, the
district mandates tree preservation, planting requirements, controls on
changes to the topography, height limits, and setback and curb cut
restrictions along railroads and certain roads. It restricts
construction within designated open space (a defined network of open
space set aside for preservation in its natural state). To preserve
designated open space without penalizing the owners of such space,
owners are permitted to transfer development rights from the designated
open space to the balance of their property. A topographic survey and a
report on the availability of public services must be submitted by the
developer as a prerequisite to any application for development. A
performance bond must also be provided to assure continued maintenance
and improvement of public open space.
Special South Street Seaport District (Manhattan)
The purpose of the Special South Street Seaport District is to
facilitate the preservation and restoration of the seaport's historic
buildings in accordance with an approved development plan. The low scale
of the seaport is retained by transferring development rights above the
low buildings to specified neighboring locations for commercial
development.
Special Transit Land Use District (Manhattan)
The Special Transit Land Use District relates development along Second
Avenue to a future subway line. The special district requires builders
of developments adjoining subway stations to reserve space in their
projects, by providing an easement, for public access to the subway or
other subway-related use. The resulting new subway entrances and
mezzanines would be airy, attractive and functional instead of sidewalk
obstructions that impede pedestrian circulation. The district is mapped
at locations between Chatham Square and East 126th Street
Special Union Square District (Manhattan)
The Special Union Square District was established to revitalize the area
around Union Square by encouraging mixed use development. Its urban
design provisions are designed to provide compatibility between new
development, existing buildings and Union Square Park. The district
mandates ground floor retail uses, off-street relocation of subway
stairs and the continuity of street walls. Special streetscape and
signage controls enhance the physical appearance of the district Within
this district a floor area ratio bonus for subway improvements is
available by special permit of the City Planning Commission.
Special United Nations Development District (Manhattan)
The Special United Nations Development District attempts to guide the
development of the midtown area adjacent to the United Nations. A major
feature of the district regulations is a unified design concept. The
basic floor area ratio for the district was increased from 10.0 to 15.0
to promote special public amenities needed in the area and to implement
the development plan.
(See Appendix E, Table 10, for more information on special districts.)