Flushing West:

Recommendations
for a Just Rezoning
A Research Report from the
Flushing Rezoning Community Alliance

Acknowledgements and Authorship

The Flushing Rezoning Community
Alliance (FRCA) wants to thank all of the
community members, volunteers and
participants in our community meetings,
trainings, town halls, door knocking
and other outreach & engagement
efforts. Your involvement, ideas and
hard work have already done so much
to help define and reshape the plan
for Flushing West. Lets keep it up!
We want to offer special thanks to
Professor Tarry Hum of the Queens
College Department of Urban Studies.
In addition to providing research and
authorship of significant portions of
this report, she has also engaged a
number of her classes as well. We
want to thank members of her Queens
College Service Learning Class from the
Spring of 2016 that helped to author
sections of the paper, especially Jeremy
Magno. We also want to think Jane
Guskin for her demographic research
and analysis of Flushing. Finally, we
want to thank all of the students and
Jing Wang for their help in producing
The Future of Flushing. This short

video was produced for the FRCA &

provides similar context and background
as pieces of this white paper. For more
information, please watch the video at
the following link:
https://vimeo.com/158716376
This research report is only possible
through the support of technical
assistance providers, including the
Center for Urban Pedagogy, the
Hester Street Collaborative, the Pratt
Center for Community Development,
the Urban Justice Center and the
Association for Neighborhood Housing
and Development. In particular, the
FRCA would like to thank Casey
Wang, Elena Conte, Cassie Ang, Ingrid
Haftel and Jonathan Furlong for their
invaluable help in research, writing,
graphic design & overall support of
the work of the FRCA. We also want
to thank Ismene Speliotis from the
Mutual Housing Association of New
York Inc., who has been a visionary
around affordable housing policy in
New York City and helped to inform
the FRCA principles, visions and goals.

Contents
4 Introduction
5

Section 1: Overview of Flushing Rezoning Community Alliance

& Our Principles for Just Development

Section 2: Overview of Demographics and Housing Stock in

Downtown Flushing

12

Section 3: Impact of Rezoning On Current Residents &

Housing Stock

20

Section 4: Broken Public Engagement Process In Rezoning

23

Section 5: Recommendations for Building and Preserving

Deeply Affordable Housing

34

Section 6: Important Additional Factors for Just Development

38

Section 7: Conclusions

39 Appendices

Introduction
This research paper result of public input gather by the Flushing Rezoning
Community Alliancea grassroots organizations dedicated to assuring just
development in Downtown Flushing, especially in the proposed rezoning of
Flushing West. From over 325 extensive community surveys, to neighborhood
door knocking, visiting religious services, to monthly town halls, trainings
and forums, our coalition has been working diligently to both educate and
engage the public in the rezoning process that will reshape downtown
Flushing. This research report captures the stories and ideas of community
members for more just development in Downtown Flushing. The Alliance has
created six concrete recommendations for affordable housing development
and preservation and five recommendations for community needs.

Recommendations for
housing policy in rezoning
1

Select MIH options that

provide the deepest level of
affordability for Flushing West

Incorporate the results of the study

of the FAAB model to examine how
density can be used to leverage
more equitable development

Use city resources to fill enrollment

gaps in SCRIE and DRIE programs

Maximize residential zoning

on Municipal Lot 2 to create
opportunity for 100% affordable
housing development

Pass anti-harassment and antidisplacement legislation like the

Certificate of No Harassment
before rezoning is finalized

Provide safety and job

training standards for workers
combined with local hiring

Recommendations for broader

neighborhood concerns
1 Incentivize development of senior
centers that meet the needs of a
diverse immigrant neighborhood
in community facility space
within rezoned neighborhoods
2 Increase 7 train service during
rush hour commutes
3 Create additional subway
entrances in rezoned area to
reduce street congestion
4 Use city funds to develop a bus
depot that can reduce pedestrian
and car traffic in Downtown Flushing
5 Environmental remediation of
Flushing Creek and improved
sanitation and solid waste
services in Downtown Flushing

If these steps are done comprehensively, we believe that the rezoning can
result in improved & more just development in Downtown Flushing to meet
the needs of a diverse, vibrant and thriving community. Without these steps
and future efforts to increase affordable housing, we fear that the Downtown
Flushing rezoning will be another step along a path of unchecked real estate
profit for multi-national corporations on the backs of working class and immigrant
New Yorkers. The Mayor, Councilman Koo and all of our city council have
stark choices to make. These recommendations offer a pathway forward.
4

Section 1:
Overview of Flushing Rezoning
Community Alliance & Our
Principles for Just Development
What is the Flushing Rezoning
Community Alliance?
The Flushing Rezoning Community Alliance (FRCA)
is an alliance of local community, faith, social
services, and ally organizations. We advocate for
the rights and quality of life of Flushing residents
and for community planning and development
that promote justice and equality. Real community
development must be equitable, protect the
interests of the most vulnerable in our community,
and serve the needs of the community as a whole.
The Alliance has been formed to be an advocacy
vehicle for diverse Flushing community members,
organizations and institutions to assure that the
planned rezoning of the West Flushing neighborhood
brings deep community benefits along with the
additional development. This includes deeply
affordable housing for neighborhood based
incomes, protections against displacement and
harassment for existing residents, good union
jobs with local hiring career opportunities, a
commitment to supporting infrastructure and
green space improvements, dedicated senior
housing to protect our most vulnerable community
members, environmental remediation, and a
planning process that engages all sectors of the
Flushing community in envisioning our own future.

Trilingual canvas teams from FRCA speaking to neighbors

about impacts of rezoning

The Flushing Rezoning Community Alliance was

formed in July of 2015 by the MinKwon Center for
Community Action, Faith in New York, the YWCA
of Flushing, St. Georges Episcopal Church, the
Unitarian Universalist Church of Queens, and Korean
Community Services of Metropolitan New York.
DC 9 Painter and Allied Trades joined the coalition
shortly after its launch. The FRCA is aligned with the
city wide Real Affordability for All (RAFA) coalition.
Since May 2015, member organizations have hosted
various public events where Flushing residents could
interact and learn about fundamental of housing
development and how it affects neighborhood
during and after the rezoning process. Organizations
participated in public events hosted by city agencies
such as Department of City Planning and Department
of Housing Preservation and Development.
Independently from city agencies, FRCA hosted its
own public events, most notably its monthly town
hall meetings where Flushing residents could voice
their concerns about the rezoning process. Through
these public forums, FRCA has engaged hundreds
of Flushing residents in English, Chinese, Korean and
Spanish about the rezoning process and its impact
on the community. These meetings have shaped the
recommendations and demands laid out in this report.

Councilmember Peter Koo addresses a packed crowd at the

FRCA Town Hall in March 2016

FRCA principles for just development

The FRCA believes the following principles
should be upheld in any rezoning and prioritized
in future development decisions in Flushing:
1

Real, permanent, affordable

housing targeted to the incomes
of current Flushing residents

Good jobs for local residents, and preservation

and promotion of small businesses

New housing developments must create real,

permanent, affordable housing for our local
residents in Downtown Flushing as well as the
greater Flushing area. (In 2014, the area median
income in Downtown Flushing was $34,000, far
below the rest of Queens at $57,000.) At least fifty
percent of new apartments created in each new
development should be affordable to local residents.
Real affordability should be tailored so that longterm residents are not priced out. Development
should preserve and expand real affordability
in wFlushing rather than further endanger it.

Flushing continues to be a gateway for generations of

new immigrant households. There is an active local
economy, with many businesses being immigrantowned small businesses that employ local residents
and that serve a local consumer base. We want
to maintain the character of the community as
welcoming of newcomers, immigrants, and startup businesses. New developments should create
good jobs for local residents, and preserve and
promote small businesses. There should be a
local hire program for any new construction that
pays prevailing wage along with apprenticeship
training for long-term career development.

Low-income senior housing for our

elders and aging population

After struggling to raise their families, many of

our elders are locked out of affordable housing
programs altogether due to their low and static
income. Those who are limited English proficient
and immigrant also face additional barriers. New
housing developments should create low-income
senior housing to ensure that our seniors are
better cared for and are not displaced, which
could place them at risk of homelessness.

Infrastructure and transportation improvements

in conjunction with development

Infrastructure and transportation improvements are

much needed in Flushing, and are essential with any
increased density given the existing overcrowding
and congestion. Investment in transportation,
schools, drainage and other basic infrastructure
needs that exist in Flushing and that will result from
additional density simply cannot wait. Steps must
be taken up front to guarantee the implementation
of needed infrastructure improvements.

Strong anti-harassment and anti-displacement

policies to protect the community

The City administration must ensure that rezoning

in Flushing does not lead to harassment or
displacement of current residents. Rezoning will
dramatically increase the value and price of land,
and many landlords could easily raise rents of
longtime residents as a result. It is absolutely crucial
for the City administration to work with all partners
in city and state government to enact strong antiharassment and anti-displacement policies that
will protect our community for years to come.
6

Sound environmental restoration and

preservation, and access to open green spaces

Before any development can proceed, a sound,

transparent, and thorough environmental investigation
and cleanup is needed of any environmental hazards.
This includes the polluted Flushing Creek and the
contaminated ground soil in the Flushing West
rezoning area. A plan is also needed to preserve
the wetland areas, manage storm-water runoff, and
prevent potential flood water damage. The long-term
health and safety of all occupants of any rezoning
area and of all Flushing residents is paramount.
Flushing Meadows Park is difficult to access and has
been underinvested in for decades. In rezoning, the
City should find ways to not only create new open
spaces in the rezoned area, but also ease access to
existing green spaces like Flushing Meadows Park.

Real and meaningful community

engagement and participation

There should be real and meaningful engagement

with the community in neighborhood planning and
development processes that are authentic, and
that respect the community life and residents. At
every stage, the City should engage and involve
all Flushing residents in an open, transparent,
and accountable manner that truly enables
the community to shape our own future.
Given the diverse, immigrant populations in
Flushing who speak different languages and
the rate of limited English proficiency, it is
vital that the Citys community engagement
process is language accessible to speakers of
Chinese, Korean, Spanish, Bengali, and more.
Furthermore, while the engagement process
is important, it is a means, not an end unto
itself. Community input must actually be
reflected in the plans that go to ULURP and in
the rezonings that ultimately take place.

Section 2:
Overview of Demographics &
Housing Stock in Downtown Flushing

Flushings Demographics
Queens has historically been New York Citys most
diverse borough. In the past 5 years more than
75,000 new immigrants have come to live in Queens
this represents the biggest influx of new residents
in the entire city.1 From Flushing to Richmond Hill,
newcomers from China, Guyana, Korea, Ecuador
and Mexico, among other countries, helped fuel the
boroughs biggest population spike since 2000.
Downtown Flushing represents the busiest and one
of the most diverse areas of Queens, and is home to
immigrants from thirteen different countries. The 2010
census put the population of Flushing, encompassing
an area beyond downtown, at 72,000 69.2 percent
Asian, 14.9 percent Hispanic, 9.5 percent white and 4.2
percent African-American. Flushing is perhaps best
known to New Yorkers as a Chinatown in Queens
indeed, the neighborhood has grown increasingly
Map of the six census tracts closest to rezoning with table
Asian, and especially Chinese, since 2000. From 2000
showing rent burdened households
to 2010, the percentage of Flushings population
identifying as Chinese nearly doubled, from 25% to
47%. It is also an increasingly immigrant neighborhood,
with 71% of its residents foreign-born as of 2014.2
When we look at the specific census tracts closest
to the rezoning, we also see a very clear need
for affordable housing, with incredibly high rates
of rent burdened households. In the six census
tracts closest to the rezoning East of Flushing
creek, more than 54% of residents spend more
than 35% of their gross income on rent.
Despite an influx of foreign capital for development
and a booming enclave economy, the proportion
of the population age 18-64 living in poverty

1
2

Department of City Planning

NY Daily News, April 2014 Queens Immigrant Population Keeps Booming

2009-2013 ACS Housing Profile

Source: NY Census FactFinder

Selected Tract(s): Queens 871, 869, 853, 849, 865. 855

GROSS RENT AS A PERCENTAGE OF HOUSEHOLD INCOME (GRAPI)

Number
Selected Housing Characteristics
(Grayed values denote less reliable estimates)

Estimate

Margin
of Error

CV*

Estimate

Occupied units paying rent

(excluding units where GRAPI cannot be computed)

7,571

378

3.0

100.0%

Less than 15.0%

892

219

15.0

11.8%

2.8%

15.0% to 19.9%

593

187

19.1

7.8%

2.4%

20.0% to 24.9%

561

164

17.7

7.4%

2.1%

25.0% to 29.9%

713

204

17.4

9.4%

2.7%

30.0% to 34.9%

680

193

17.2

9.0%

2.5%

35.0% or more

4,132

402

5.9

54.6%%

4.6%

increased almost 30% from 2009 to 2014, and

median gross rent as a percentage of household
income grew 11%. Flushing residents pay nearly
40% of their household income in rent.
In looking at the overall housing needs within the
Flushing West study area, there is a significant need
for deep affordability, especially among seniors.
Senior households make up 28% of the renters
in Flushing. The Median Household Income in
Community Board 7 has declined every year since
2000 and is currently $51,929, with nearly 50%
of renter households making less than $35,000
in the past year. In taking a closer look at the
neighborhood of Flushing itself, nearly half of all
renter households (45.6%) make $35,000 or less,
and more than 50% of low income renters (53%)
are severely rent burdened. Nearly 10% of renters
face moderate or severe overcrowding, meaning
that there were more than 1.5 persons per room.3

3
4

Percent

Flushings Housing Stock

Downtown Flushing and the greater Flushing area
is home to a wide range of housing types, with
1 to 4 family homes making up nearly half of the
stock. 35% of the population in Flushing resides in
in rent-stabilized housing and the neighborhood
is home to two large NYCHA developments:
Bland Houses and Latimer Gardens.4
Housing Type

Percentage of Units

1 to 4 units

49.7%

Multi-Family

50.3%

Rent-Stabilized

35.8%

Section 8

1.2%

NYCHA

1.0%*

* Data taken from NYCHA Unit Counts

2014 ACS 5-Year Summary File B25070, 2014 CS 5-Year Summary File B25091, 2014 ACS 5-Year Summary File B25014
Housing Stock Text and Table from 2014 HVS Survey Data

10

MOE

Map of Flushing Housing Stock

11

Section 3:
Impact of Rezoning
On Current Residents
& Housing Stock
Overview of survey respondents

FRCA Community Survey

In attempt to understand the impacts of a potential
rezoning and the already wide-scale development in
Downtown Flushing, the Flushing Rezoning Community
Alliance, led by the MinKwon Center, conducted
surveys from May until September of 2015. 334
community surveys were conducted at congregations,
local businesses, community centers, and on the street.
The Urban Justice Center helped to analyze the survey
results and the Center for Urban Pedagogy helped to
translate them into visuals. They paint a stark picture
of a community in deep distress about affordability,
rising rents and a changing neighborhood.
Demographic Breakdown of Survey Respondents
The survey sample closely mirrors the demographic
breakdown of Downtown Flushing. The majority
of respondents were of Asian descent, spoke a
language other than English, reported annual incomes
below $50,000, and were renters. Almost 75% of
12

respondents were Asian; about 15% were Hispanic or

Latino; 6% Black or African American; 5% white; and
1% identified as other. 60% of respondents speak a
language other than English as their primary language.
17% of respondents report an annual income below
$10,000, and almost half (46%) of respondents report
an annual income of $15,000 to $49,999, while 29%
reported incomes of $50,000 and higher. Respondents
were mostly tenants that rent their home or apartment
(79%), while homeowners comprised about a fifth
(21%). A majority of the respondents are female, (65%),
and about one third of respondents (30%) are 65 years
old and over. The average household composition
was two adults and one child. In addition to living
in Flushing, almost a third of respondents work in
Flushing (28%), 27% of respondents reported that they
regularly visit Flushing with their families, and about
a fifth of respondents (22%) report that they have a
connection to Flushing through a religious institution.

Neighborhood changes in the

past 3 years

Changes in Neighborhood

compared to 31% with incomes above $50,000.

Most respondents reported an increased cost of

everyday goods (49%) over the past three years, while
many also responded that there have been more
small business closures (45%). Many respondents
were concerned about increased commercial and
residential rent prices, lack of sanitation, public
transportation capacity, and congestion from
automobiles. About half of respondents (48%) are
very concerned about having real input into the
[rezoning] processes and the changes happening
in the neighborhood; of those respondents, 70%
of respondents have incomes below $50,000,

In the past 3 years:

- About half (49%) of all respondents noted that
everyday goods have become more expensive.
- Most (72%) of these respondents had annual
incomes below $50,000, compared to less than
a third (28%) with incomes above $50,000.
- 70% of respondents who indicated that they
had noticed an increase in small business closures
had annual incomes below $50,000, compared
to 30% with incomes below $50,000.

13

Housing affordability

Housing Changes

Rezoning Concerns

Overall, respondents report that apartments are

no longer affordable (51%), and that increasingly,
neighbors are forced to move out (28%). Most
respondents (74%) are very concerned about
increasing rent prices and many respondents (40%)
report that at least half of potential new housing
should be set aside for people who already live in the
neighborhood, while 84% of respondents believe that
at least half of new housing should be set aside for
households with annual incomes below the median
income of $34,000. These trends are particularly acute
for households making less than $50,000 annually.

In the survey, Flushing residents and business

owners were asked specifically about their
concerns as it related to the rezoning process.

14

The biggest concerns about the rezoning

include affordable housing, sanitation,
overcrowding and crowded sidewalks. Other
priorities are air pollution and a lack of public
transportation to meet neighborhood needs
(68% & 64% very concerned, respectively).

Who should housing built in

the rezoned area benefit?

Top four concerns about

rezoning

15

Top four improvements

needed in Flushing

Community Needs and Priorities

The survey also sought to address the priorities
that community members would like to see in
future development. Across respondents, a
majority of those surveyed reported needs around
increased housing, community and spaces, as well
as improved sanitation and public transportation.

16

Paul Nathan: Profile of Flushing Tenant

Paul Nathan emigrated from Jamaica as child to the US
and has been in living in Flushing for decades. Paul has
lived at the Summit at 132-40 Sanford Ave since he was
17 years old. When he first moved to Sanford it was at
the height of disinvestment and the crack epidemic,
and Downtown Flushing was completely different.
In April of 2016, he gave a walking tour to 3 students
from Queens College who captured Pauls narrative of
a drastically changing Flushing that is pushing out lowincome, and especially black tenants. In meeting with
students, described Sanford Ave as a predominantly
Black enclave in Flushing dating back decades.
However, in recent years Paul has gotten the clear
sense that Flushing no longer wants black people.

stabilized tenants all over Sanford Ave and downtown

Flushing. Even though the city voted down rent
increases in 20155, there exists a loophole through
MCIs. Paul explained, Say you have 10 tenants and
want to replace doorknobs that will cost $100. Now the
landlord can split the cost of the doorknobs between
every tenant and add it to their monthly rent in
perpetuity. Because of this loophole, landlords of rent
stabilized buildings are able to pass on the expense
of major capital improvements in rent increases.
The students walked with Paul down to 132-70
Sanford6 where Paul noted that these tenants were
saved by then State Attorney General Andrew
Cuomo. The property owner, Vantage, was exploiting
tenants who did not know their rights.7 As per a
report on the Attorney Generals website, The
Attorney Generals investigation into Vantage
had revealed that the landlord was attempting to
force long-term, rent-regulated tenants to move
out of their homes in order to impose significant
rent increases on new tenants and increase profits.
Cuomo had the following to say about the case:

When he first came to Sanford Avenue, Pauls family

was able to receive a rent-stabilized apartment without
showing any employment history. His building was
a crack den and he vividly remembered the vials
that were imprinted into the concrete and blanketed
the sidewalk. The low fire escape of his building
created many opportunities for break-ins and thefts
for addicts to get their next fix. He recounted how
Landlords who harass tenants harm all New York City
hard he fought to save his building through the
residents by displacing long-time tenants from stable
creation of a tenants association with a neighbor
neighborhoods and exacerbating the affordable
and how their efforts turned around the area.
housing shortage. In these tough economic times,
Today, Paul is tired of fighting. The community he knew the preservation of affordable housing is of the
is a shell of what it once was. He says his building is
utmost importance. Todays agreement with Vantage
down to four African Americans, including himself. He
not only preserves the rent-regulated apartments
is being harassed by his landlord who cuts the heat
owned by them, but also sends a strong message
and hot water off in his apartment in hopes of forcing
that my office will continue to protect tenants
him out. In the winter time, elderly tenants huddled
and bring unscrupulous landlords to justice.
in the lobby, the only properly heated part of the
Paul helped to paint a vivid and disturbing
building. The superintendent of the building told
portrait of landlords in Downtown Flushing
Paul, Were fixing up the building, but not for you.
intent on moving out rent-stabilized tenants to
Pauls story of harassment of rent stabilized tenants
make way for higher income market housing.
is part of a broader trend. He shared with students
how MCI (major capital improvement) increases have
been a common tactic from landlords to push out rent

http://ny.curbed.com/2015/6/30/9944654/new-york-city-board-makes-history-approves-rent-freeze
http://www.crainsnewyork.com/article/20151204/REAL_ESTATE/151209927/new-jersey-firm-bets-on-queens-buys-138-8-millionapartment-portfolio-in-flushing-and-elmhurst
7
http://www.ag.ny.gov/press-release/new-york-state-attorney-general-andrew-m-cuomo-announces-1-million-settlement-new-york
5
6

17

Rent Stabilized Housing at Risk for

Displacement in Downtown Flushing
As Pauls story shows, perhaps the tenants most at
risk from displacement due to coming rezoning and
increase in development in Downtown Flushing are
those currently living in rent stabilized housing in and
around the Flushing rezoning. To this end, Professor
Tarry Hum from Queens College Urban Studies
Department conducted a study of this housing stock
and potential and real threats to these tenants.
By examining sales records for rent-stabilized
buildings, Professor Hum was able to create a
list of apartment buildings that have either been
purchased in their entirety since the rezoning and
a list where individual units with a rent-stabilized
building have been converted to co-ops. These
units are likely to be the target of harassment and
displacement tactics by landlords, as they seek
to push out long term rent stabilized tenants in
favor of market rate and/or condo conversions.
Based on this data, it is apparent that many
Flushing rent stabilized buildings are mixed,
deregulated buildings with apartments that
have converted to co-op ownership.

Portfolio LLC (41.71%) - and financialized by the same

mortgagor - Delphi CRE Funding LLC. The sales price
for each building is next to the building address.
132-25 Maple Avenue
132-40 Sanford Avenue
133-17 Sanford Avenue*
132-57 Sanford Avenue

$52,940,5558
$14,755,761
$16,501,595
$32,650,562

*(Paul Nathans Residence)

The new investor group owners address is c/o
Treetop Development LLC in Teaneck, NJ and the
mortgages secured to purchase these buildings is
from Delphi CRE Funding LLC c/o ACORE Capital
Mortgage LP in Larkspur, California. Delphi CRE
Funding LLC was founded in May 2015 (a few
months before they purchased these buildings) and
financialized with a $1.6 billion capital commitment
from Delphi Financial Group, Inc. which is a wholly
owned subsidiary of the Tokio Marine Group the largest publicly traded insurer in Japan.

Appendix 2 lists Flushings rent stabilized buildings

that sold since the announcement of rezoning
in the BOA study. A total of 42 rent stabilized
buildings with 1,800 apartments sold. Within these
transactions, some disturbing trends have arisen.
Although further study is needed, it appears that in
Downtown Flushing rent stabilized building have been
targeted by international investors, often shielding
their investments with layers of shell companies.
Perhaps the best example of this practice is the 4
properties owned by Plaza Realty Investors. The
following four buildings were owned by Plaza Realty
Investors NY LLC which sold them on December
4, 2015 to an investor group - Flushing Columbia
Audubon LLC (37.7%), Flushing West 163 LLC (8.15%),
Flushing West 131 LLC (12.36%), and Flushing QF

The Maple Avenue building was purchased along with 41-40 Denman Street in Elmhurst, Block 1566, Lot 21 by the same investor
partnership and mortgagor for $48,600,000.

18

Speculation Accelerating Rapid

Rise in Real Estate Costs
Flushing has also seen a rapid increase in the price
of land since the announcement of the rezoning
BOA study in 2010. In the past 5 years, real estate
prices and transactions have skyrocketed in the
Downtown Flushing area. There is perhaps no greater
example of this out of control real estate speculation
than the Assi Plaza in the rezoning study area.
Assi Plaza - Case Study in Speculation
Flushings waterfront boasts one of the most
speculative and hotly contested pieces of real estate
in New York City. The area consists of many industrial
warehouses, vacant lots, and several properties that
have risen in price by tens of millions of dollars since
the Flushing Willets Point Corona LDC (FWPCLDC)
received a $1.5 million Brownfield Opportunity Area
(BOA) grant in 2010 and the city announced its
proposed rezoning in Flushing. The former site of the
Assi Plaza Supermarket at 131-01 39th Avenue which
shuttered in 2014 serves as the most vivid case study.
Assi Plaza Supermarket opened in 1994 as an
important community institution with almost 100,000
square feet dedicated to a variety of Chinese and
Korean products. Property records show that the
Rhee Brothers received the deed to the land in 1993
and took out a $4.2 million mortgage to finance the

property. After two decades, the Rhee Brothers

sold the site to Outlet Plaza LLC for $54.6 million in
September 2014; the new owner immediately looked
to flip the property. Within a month, a contract of sale
was arranged with Ranger Sagamore Flushing LLC and
an agreement was made with another company, Triple
Star Realty LLC. By July, 2015 Outlet Plaza LLC moved
the property to 131-01 39th Avenue Owner LLC for
$78.3 milliona $24 million profit in nine months.
This also represents a $74.1 million property value
increase in just 22 years, an appreciation of 1764%.
Reports have indicated the purchaser as Triple Star
Realty. Their plans are to construct an immense
mix-used site development that will contain
condominiums, offices, numerous retail options,
and a hotel that will rival nearby Skyview Parc.
Unfortunately, Assi Plaza is not alone. Across
Downtown Flushing and especially near the
rezoned area, there is an unchecked real estate
boom that raises serious concerns about the
viability of Downtown Flushing to remain
as an enclave for the larger immigrant and
working neighborhood that it is today.

19

Section 4:
Broken Public Engagement
Process In Rezoning

The Flushing West rezoning study area is one of

the smallest pieces of land the city has designated
for rezoning. The Flushing West rezoning study
area is the only rezoning proposal that was
initiated by a private corporation. As mentioned
in relationship to Assi Plaza, in 2011 the Flushing
Willets Point Corona Local Development Corporation
(FWPCLDC) received a NY State Department
of Statement Brownfield Opportunities Areas
Program grant to study development potential in
a 60 acre areas that includes the exact 32 acres
of land currently being studied for rezoning.
Under the BOA Grant guidelines, municipalities,
community organizations and community boards
are all able to receive grant funds to complete
revitalization plans and implementation strategies
for areas or communities affected by the presence of
brownfield sites, and site assessments for strategic
brownfield sites. It appears the FWPCLDC qualified
as a community based organization, that for the
purposes of this grant, are defined as: not-forprofit corporations that are incorporated under
Section 501(c)(3) of the Internal Revenue Code
whose stated mission is to promote community
revitalization within the geographic area in which
the community based organization is located;
has 25 percent or more of its Board of Directors
residing in the community in such area; and
represents a community with a demonstrated
financial need as indicated by high unemployment,
low resident incomes, depressed property
values, and/or high commercial vacancy rates.

After receiving nearly $1.5 million to conduct a study

of the area, The FWPCLDC has actually contracted
the Department of City Planning to move the zoning
proposal through the the environmental review and
ULURP process. Although city planning has claimed9
that it is baseless to say the LDC has any outsize
influence on the process, the similarities between the
Draft Scope of Work from City Planning and the Master
Plan created by the LDC would suggest otherwise.
The zoning recommendations from the LDC were
presented to the Department of City Planning in
Oct of 2013 before any of the public input processes
that the Department of City Planning led in April
of 2015 through April 2016. However, the zoning
recommendations are from the LDC are nearly
identical to the Draft Scope of Work released by the
Department of City Planning in November of 2015.
The LDCs plan creates a Special Waterfront District
that is mirrored in DCPs plan. It recommends an
upzone from C4-2 to C4-4 for the exact same sites,
and even mirrors DCPs proposed zoning changes on
M1-1 lots to mixed commercial and residential zoning.10
All of these similarities seem particularly problematic
when we know that the board of the LDC includes
bankers, lawyers who specialize in development.11 The
Board members include employees from Citi Bank,
The Mattone Group, KEPCO, Inc., Graf & Lewent
Architects, the Flushing Development Center, New
York Community Bank, Flushing Bank, Onex Real
Estate Partners, Ciampa organizations, Farber, Rosen
& Kaufman PC, the New York Mets, the Briarwood
Organization, TD Bank, F & T Group, and a few other
major corporate interests.

From an Op-ed from the Director of City Planning for Queens John Young published on July 13th 2015 and available online at:
http://www.crainsnewyork.com/article/20150712/OPINION/150719986/city-planning-official-wants-to-set-the-record-straight-aboutneighborhood-project
10
Analysis of the BOA master plan developed by the Hester Street Collaborative
11
List of Board Members for Flushing Willets Point Corona Local Development Corp: http://www.queensalive.org/
9

20

Almost all of the members of the board could

benefit from increased in development in Flushing
from directly developing property in the rezoned
area and surrounding to community to services
important to developers including architecture,
accounting, legal experts on development
issues, and banks that lend to developers.
This is all particularly problematic, given that the
LDC was found guilty of illegally lobbying city
council members along with the New York Economic
Development Corporation as part of a state attorney
general investigation into the passage of the Willets
Point deal.12 Other organizations, including Willets
Point United, have already raised concerns about the
legality of having the LDC initiate a rezoning process.13

http://www.nydailynews.com/new-york/queens/city-economic-agencies-admit-illegal-lobbying-support-willets-point-planarticle-1.1107377
13
http:// www.timesledger.com/stories/2015/23/flushingldc_2015_06_05_q.html
12

21

New York City Planning Map of Zoning Recommendations Compared with LDC Zoning
Recommendations Map

22

Section 5:
Recommendations for
Building and Preserving
Deeply Affordable Housing

Using the above analysis and monthly town hall

meetings, Flushing residents, congregations,
labor organizations and community organizations
have determined six actionable steps the
city must take to insure more equitable
development with the rezoned area.
1

Prioritize MIH options that provide maximum

level of deeply affordable housing

After years of debate, the city council passed

legislation in March that created the citys first
Mandatory Inclusionary Housing (MIH) program.
This program originally did not meet the needs of
low-income New Yorkers, only reaching depths of
affordability far beyond the residents in Flushing.
Through concentrated efforts from Real Affordability
for All, community coalitions in neighborhoods
slated for rezoning across the city, and the work
of progressive city council members like Jumaane
Williams, the mayor was forced to improve the
initial MIH program to include add-ins to achieve
affordable housing at 40% AMI. At a town hall
in March hosted by the FRCA, Councilmember
Koo vowed to only support MIH if it included
an option with housing at 40% AMI or lower.
Although the FRCA still finds many flaws within
the MIH program, echoed by activists citywide, it
does create income bands for affordable housing
that closely resemble the incomes of current
Flushing residents. To achieve the maximum level
of affordability within the Flushing West rezoning,
Councilmember Koo, with community support,
must push for the Mandatory Inclusionary Housing
(MIH) option with the lowest Area Median Income
(AMI) bands: 25% of the units will have rents
at an average of 60% of AMI or $51,800, with a
required band of 10% of the units at 40% AMI or
$34,500. This option can also be paired with an
additional deep affordability option which would

allow developers to build 20% of the units at 40% of

AMI ($34,500) instead of 25% of units at 60% AMI.
To assure that the maximum number of units
are affordable to Flushing residents, the FRCA
will adamantly oppose any rezoning that does
not assure that the maximum number of units
are available via MIH at 40% AMI or lower.
In addition, in all affordable housing created through
the rezoning process and as part of the Special
Flushing West District created in the rezoning, all
efforts should be made to assure that 50% of housing
lottery is set aside for local residents. Normally, the
geographic designation to determine local has
been Community Board 7. However Community
Board 7 is one of the largest areas of any Community
Board in the city, and spans a number of different
neighborhoods with highly different needs. When
creating a local priority in the rezoned area, and
especially with the Special District, we should
focus in on the zip codes and census tracts with
the highest numbers of renters closest to the
downtown core. This will assure that affordable
housing is available to those most impacted by
the development pressures from the rezoning.
2

Attempt to Incorporate Results of City Led Study

Around Mechanisms for Deeper Affordability
and Labor Standards in Flushing Rezoning

As part of the Real Affordability for All (RAFA)

coalition, the FRCA has supported and continues
to support using density to achieve deeper and
greater quantities of affordable housing and job
standards in rezoned neighborhoods. In a recent
op-ed, the Campaign Director for Real Affordability
for All, Maritza Silva Ferrell, articulated the broader
coalitions vision for what the study can achieve,
particularly related to creating affordable housing
units for those making below 40% AMI and achieving
local hiring, apprenticeship and safety standards in
23

Flushing Income Demographics Compared to Citys

Mandatory Inclusionary Housing (MIH) Program

24

rezoned neighborhoods. The mayor has committed

to conducting this study to examine ways to
leverage density to get to deeper affordability
and job standards in rezoned neighborhoods.
Up to this point, Flushing has not been included
as a place where the results of this study can be
applied because it has advanced to far in the
environmental review stage and scoping of the
rezoned area. FRCA believes that this should be
changed. In the census tracts closest to the rezoning,
nearly 30% of residents make less than 30% of Area
Median Income, and the mayors MIH plan will not
provide any affordable housing for these residents.
Additionally, although there is a limit to the density
possible in the rezoned area because of flight path
restrictions from La Guardia airport, there are some
a number of lots that are receiving massive increases
in their zoning with almost nothing in exchange.
In the above analysis based on the DCPs projected
development sites, Casey Wang from the Hester
Street Collaborative was able to show that on at
least 2 of the first 14 projected development sites
there is a massive increase in the Floor Area Ratio
(FAR) and buildable square footage. This is especially
true in the areas of the rezoning that are currently
zoned for manufacturing and have a proposed
change to residential / mixed use zoning. On the
two sites that were analyzed by the Hester Street
Collaborative, there was a projected increase from
0 residential FAR or 2.43 residential FAR to 4.3
residential FAR, which means an increase of 199,000
square feet of residential building space for the
owners of these lots. This type of density give away

is the exact item that RAFA is proposing be captured

for community benefit through rezonings. If nothing
else, administration must examine ways to capture
community benefits in Flushing on lots being rezoned
from manufacturing to high density residential uses.
3

Use Public Resources to Fill SCRIE/

DRIE Enrollment Gap

As communities across the city struggle to preserve

units of affordable housing from gentrification and
displacement, tenants and advocates have been
searching for ways to fully utilize the resources that
do exist to keep residents in their apartments.
In 1970, the City of New York began the Senior Citizen
Rent Increase Exemption (SCRIE) program, offering
qualifying senior citizens an exemption from future
rent increases. In 2005, it was expanded to include
qualifying tenants with disabilities under the Disability
Rent Increase Exemption (DRIE) program. These
programs help eligible senior citizens (aged 62 and
over) and tenants with qualifying disabilities stay
in affordable housing by freezing their rent. Under
both programs, a property tax credit covers the
difference between the actual rent amount and what
the tenant is responsible for paying at the frozen rate.
According to the Department of Finance, as many as
155,366 households may qualify for these programs.
Of this number, 61,319 already receive the benefit,
and as many as 94,047 additional City residents that
are not enrolled could be eligible. This suggests that
the current enrollment rate is approximately 39%
of what it could be. The reasons eligible residents
are not enrolled are cultural factors, including

25

language barriers, insufficient public communication

through government and the media, and a negative
perception of receiving government support.
According to the 2014 census, 41,767 senior
citizens live in Flushing, making up 17.2% of the
total population. Within that population, 11.4%
are currently enrolled in SCRIE, representing the
lowest enrollment percentage in the 5 boroughs.
In order for members of the Flushing community to
fully utilize the benefits offered by SCRIE and DRIE,
the city should do everything in its power to boost
enrollment among residents who live in and around
the Flushing West study area. This should include:
- Informational materials about SCRIE and DRIE
in all languages spoken by Flushing residents
- Investing resources from the Neighborhood
Development Fund to directly hire or contract with
local, culturally competent and multilingual agencies
to go door to door in rent stabilized buildings
to invite participants to join SCRIE or DRIE
- Using the map of rent stabilized buildings within the
downtown Flushing area, and especially the buildings
identified in this report as potential hotspots for
displacement and harassment targets, to assure that
all seniors and Flushing residents with disability are
able to receive the rent protections they deserve
4

Use public owned lots to create deep

affordability in rezoned area

Muni Lot 2 is the citys best opportunity to build

truly affordable housing. In the rezoned area, there
is limited opportunity to create deeply affordable

26

housing because of a combination of a strong market

and almost all lots being privately owned. The city
has used subsidy extensively to create affordable
housing plans at deeper levels of affordability in other
neighborhoods, but HPD and DCP have suggested
that developers are unlikely to seek subsidy within the
West Flushing area. Because of this, one of our the
citys greatest resources to develop deeply affordable
housing is the last remaining piece of publically
owned land in Downtown Flushing: Municipal Lot #2.
FRCA has two important recommendations to
assure that development in Flushing includes 100%
deeply affordable housing on Municipal Lot 2.
Include Municipal Lot #2 In the Flushing
West Rezoning ULURP Process
As can be seen in the following map, Municipal Lot
2 is directly outside of the current proposed zoning
changes. By including Municipal Lot 2 in the rezoning,
we can assure that one of the greatest remaining
assets for affordable housing development in
Downtown Flushing is included in the rezoning process

Existing DCP Rezoning Area and

Proposed Expanded Rezoning Area

27

EXISTING ZONING
Maximize Residential Building on Municipal Lot 2 to
Assure a Maximum Number of Affordable Units
The following tables and graphic illustrate a
development analysis of Municipal Lot #2, created
by Hester Street Collaborative. It shows the existing
zoning for Municipal Lot #2, plus four options for
rezoning the lot. Each scenario notes the total number
of residential units allowed, plus some more technical
zoning information. See the notes below the graphic
for help understanding these technical details.

Development currently allowed

on the site, as-of-right
Total Residential Units

32

Zoning Designation

C4-2

Maximum Residential Floor

Area Ratio (FAR)

2.43

Maximum Residential
Square Footage (SF)

32,401

DCPS WEST FLUSHING REZONING PROPOSAL

FRCA MAXIMUM RESIDENTIAL

REZONING PROPOSAL

Development allowed if DCPs proposal for West

Flushing Rezoning Study Area were applied

Proposal to rezone for maximum residential space

Total Residential Units

149

Total Residential Units

233

Zoning Designation

C4-4A

Zoning Designation

C4-4D

Maximum Residential Floor

Area Ratio (FAR)

4.60

Maximum Residential Floor

Area Ratio (FAR)

7.20

Maximum Residential
Square Footage (SF)

149,043

Maximum Residential
Square Footage (SF)

233,285

FRCA MAXIMUM COMMERCIAL

REZONING PROPOSAL

FRCA COMPROMISE REZONING PROPOSAL

Proposal to rezone for maximum commercial space

Proposal that presents a compromise between

maximum residential and commerical space

Total Residential Units

181

Total Residential Units

162

Zoning Designation

C4-5D

Zoning Designation

C4-5X

Maximum Residential Floor

Area Ratio (FAR)

5.60

Maximum Residential Floor

Area Ratio (FAR)

5.00

Maximum Residential
Square Footage (SF)
28

181,444

Maximum Residential
Square Footage (SF)

162,003

Notes:
All zoning scenarios assume a maximum building height of 120, to ensure they do not violate Federal Aviation Administration (FAA)
restrictions on building height near LaGuardia airport flight paths.
Key to technical terms:
- Total Residential Units: The total number of residential units the zoning scenario would accommodate. These numbers are based on
a requirement of 1,000 square feet for each residential unit.
- Zoning Designation: The technical name of the zoning scenario in the citys zoning code
- Floor Area Ratio (FAR): FAR is a formula the city uses to limit the size and shape of a building. Its the total square footage of all the
floors of a building, divided by the total square footage of the lot its on.
- Maximum Residential Square Footage (SF): The total number of square feet that could be dedicated to residential units.

29

FRCA recommends a zoning of C4-4D on Municipal

Lot #2, which will maximize the number of residential
units on the lot. By rezoning to C4-4D and providing
deep levels of city subsidy, the city could assure
the construction of 100% affordable housing at
neighborhood based incomes which would add
an additional 233 units of affordable housing to
the current plan proposed in the scope of work.
This would increase the number of affordable
units to be developed through the rezoning from
the current expectation of 515 to 748 units, which
represents a 45% increase without adding any
additional market rate units.17 The type of city
subsidy necessary to achieve 100% affordability
should be viable, given the multi million dollar city
subsidy commitments to other neighborhoods
being rezoned with few comparable sites in Flushing
that are expected to chose to take city subsidy.

Anti-harassment & anti-displacement

measures put in place on the front end

All over New York City, low-income tenants

are being displaced from their homes as
changing neighborhoods give landlords
the opportunity to increase their profits by
bringing in new, higher-paying tenants.
Many landlords resort to harassment and other illegal
tactics, especially in rent stabilized apartments,
because getting long-term tenants out gives the
landlord the opportunity to renovate the apartment,
raise the rent (often even taking it out of rent
stabilization entirely), and increase their profits with

17

higher-paying tenants. Harassment is already illegal,

and rent stabilized tenants can go through housing
court or through a state process to try to stop it. But
these options arent enough to protect tenants in
New York Citys high-pressure housing market. Many
landlords calculate that the risk and price of getting
caught for harassing tenants are both low enough
to be worth it - and current support mechanisms
for tenants facing harassment only kick in after the
harassment, and often displacement, has occurred.
Certificate of No Harassment
One of the primary ways landlords raise rents and
eventually deregulate rent stabilized apartments
is renovating apartments (or some!mes whole
buildings) after tenants move out. The upgrades help
to attract higher-paying tenants, allowing landlords
to pass on some of the costs of the renovations.
These renovations often require permits from the
Department of Buildings, which are currently fairly
easy to get. Following the model of an already
existing Certificate of No Harassment program in the
Clinton Special District of Hells Kitchen in Manhattan,
if landlords with a history of harassing tenants cant
get the permits they need to do the renovations
that help them raise rents, many landlords will be
discouraged from pushing tenants out as the risk
to their own profits would simply be too high.
Legislation to expand this model citywide has
already been introduced to the City Council by
Councilman Brad Lander, and would function by
requiring landlords to obtain a Certificate of No
Harassment in all cases before they can get the

Based on the Flushing West Rezoning - Draft Scope of Work with a waiver for additional height from the FAA and a 25% MIH option
to achieve deeper affordability. See draft scope of work pages 23 - 25 available here: http://www1.nyc.gov/assets/planning/download/
pdf/applicants/env-review/flushing-west/draft_scope.pdf

30

permits from DOB required to renovate any units.

More specifically, HPD would be required to keep
a citywide database of buildings with indications of
possible harassment. The database would include such
records such as Tenant Protection Act filings, New
York State Housing and Community Renewal filings,
housing court cases initiated against tenants, and
serious Housing Maintenance Code violations. HPDs
database would also include reports of harassment
submitted by community groups. Based on set criteria,
any building with excessive numbers of the records
described above would be flagged as a Building with
Harassment Indicators. Any landlord seeking an Alt
1 or Alt 2 permit from DOB would be automatically
and promptly checked against HPDs Buildings with
Harassment Indicators list. Landlords applying for
permits for buildings that are not flagged by the
list would be reviewed quickly and would likely be
approved by HPD to proceed through the current DOB
permit process. In cases where buildings were flagged,
landlords would have to go through a more stringent
administrative process to determine whether harassment
has occurred - and if it had, would incur punishment
beyond not obtaining the renovation permit.
Members of the FRCA conducted a town hall to
discuss this mechanism with current tenants of rentstabilized buildings, who expressed that even in
situations where they knew their rights to call out
harassment, the legal aid provided by the city or
other institutions was too little and too late. They
overwhelmingly expressed favor for a mechanism that
would change the incentive to harass tenants, and felt
that a Certificate of No Harassment - if accompanied
by city commitment to publicizing, implementing, and

tracking the process to report harassment and obtain

certificates - would serve that need. Additionally, a
punishment for landlords who do harass tenants
could be requiring additional set-aside of new,
permanently affordable units, which would help to
alleviate pressure on the affordable housing stock.
Good Neighbor Tax Credit for Small Homes
As neighborhoods and communities across the city
continue to change in the face of steady development,
every facet of New Yorks housing stock has become
essential to tenants looking for an affordable place
to live. While rents have continued to climb, tenants
have found rental opportunities within smaller 1-4 unit
buildings, and 2-3 family homes. Many neighborhoods
in areas being rezoned contain a portion of smaller,
owner-occupied buildings, whose landlords are facing
tremendous displacement pressure. The City must
use every tool that it currently has at its disposal and
explore every legislative and policy option for creating
others, so that it can assist small building owners
and protect a critical supply of affordable housing.
Owners often make rent-setting decisions that
take into account whether the tenant would be
vulnerable to dramatic rent increases (because
they are, for example, a fixed-income senior
citizen, a single parent, disabled, or simply low- or
moderate-income). But as taxes and other expenses
increase, owners may be forced to raise rents.
A Good Neighbor Tax Credit, which would
incentivize modest tenant protections by providing
an un-regulated, month-to-month tenant a oneyear lease. In exchange, the landlord would receive

31

a property tax credit from the city. In addition,

the coalition recommends the city implement
the following policies to assist homeowners
who may be impacted by the rezoning:
- Lower water & sewer rates
- Down payment assistance programs
- Expansion of small homeowner
counseling programs
Tenants consulted by FRCA expressed
interest in this program, especially for
households not exclusively within the rezoning
tract but within the entirety of CB7.
Strengthen Legal Protections for All Tenants
Facing Eviction - Right to Counsel
Although providing voluntarily legal services is a
good step, it is not the same as guaranteeing legal
representation. For those tenants most at-risk,
tenants currently facing eviction, the city must pass
legislation that assures those tenants are guaranteed
legal council. Particularly, tenants interviewed by
the FRCA expressed that even in cases where they
do wish to engage legal services in disputes with
their landlords, legal services are both too slow
to engage as well as frequently inaccessible in
languages other than English (including Spanish,
Chinese, and Korean). Protecting the Right to
Counsel for tenants facing eviction, and ideally,
any housing court case, would allow tenants to
understand their rights more fully and subsequently
effectively enforce those rights in legal proceedings.

32

Regulations on Major Capital Improvements

When engaged in small group conversations about
challenges faced by tenants, many also noted
struggles with major capital improvements (MCIs).
In many buildings in the Downtown Flushing area
and greater Flushing, tenants noted problems with
shared resources in the building, including broken
elevators, broken front doors, dangerous front steps
outside buildings, and other shared resources. When
landlords were approached to fix these problems
in the form of major capital improvements, tenants
reported that landlords were either unwilling to
cover the costs of the repairs without higherincome tenants, or threatened to pass the costs
down to tenants themselves. Enforcement of major
capital improvements without increased costs to
tenants is critical to ensure safety and operability
of much of the housing stock in Flushing.
Fair Chance Affordable Housing
In affordable housing units subsidized by the
Department of Housing and Preservation (HPD),
many tenants who qualify because of their
income are disqualified because they do not
meet HPDs guidelines and regulations in terms
of background, credit checks, and immigration
status. However, HPD has the discretion not to
use such strict guidelines so that such housing
can benefit the largest group of people.
The Flushing scope should include legislation that
makes it illegal for landlords who receive city subsidies
to discriminate against tenants based on designations
of credit, immigration status, or background. For

buildings with city subsidies, it should be ensured

that landlords make apartments available to residents
who may not be able to document lawful immigration
status and should accept forms of identification
and income verification available to undocumented
individuals. With 71% of Flushing residents being
foreign-born, this legislation is particularly crucial to
protect Flushing tenants access to affordable housing.
6

Labor Standards in Development Projects

In Flushing, we are not only concerned about what

is being built, but also who is building it and who
will work there after the project is completed.
It is essential that the jobs created through
construction and permanent service positions in new
developments provide fair wages and safe working
conditions and hire locally from the community to
create opportunities for good paying careers.
Good jobs and Local Hire
New construction and businesses will mean a
lot of new jobs in the area and the City should
guarantee that those jobs create career opportunities
for local residents. Developers should not be
allowed to build unless they commit to using
contractors that are part of a NYS approved
apprenticeship program that will provide a pathway
to well trained careers for local residents.
- The City should provide funding for programs to
ensure that local residents are eligible and prepared
for the state certified apprenticeship programs,
including GED programs, stipends and childcare.

- The City must also adopt local hiring requirements for

the rezoned area. This can be done either through the
creation of special purpose districts that mandate local
hire and/or through an executive action that mandates
local hiring for all projects using city subsidies.
- As of 2014, 34 percent of Flushing residents worked
in the service sector, making the service sector the
largest employment sector for Flushing residents. This
rezoning is going to create a lot of new service sector
jobs for cleaners, concierge, supers, handymen, etc.
working in the new residential buildings. It is important
that we examine ways to assure that developers
pay prevailing wages for services workers in their
buildings to assure dignified permanent work.
Safety and Training for Workers
There recently has been an alarming increase in
construction worker fatalities and life changing
injuries in New York City. 18 construction workers
died in the field from the beginning of 2015 to
date. In rezoning, we can work to attach safety
and training standards that can protect workers
from dangerous conditions and mistreatment.
- The City must mandate provisions for worker safety
and training to ensure our most vulnerable workers
are protected. Developers should not be allowed
to build unless they commit to using contractors
that are part of a NYS approved apprenticeship
program. This is especially important for any
project that receives subsidy from the City.

33

Section 6:
Important Additional Factors
for Just Development

Although the FRCA has focused in our efforts on

issues related to affordable housing because of
the diverse and valuable civil service and nonprofit
organizations in Flushing that have focused on other
ways that development is impacting downtown
Flushing. However, throughout the process the
members of the Flushing Rezoning Community
Alliance have lifted up consistent and clear concerns
around congestion & overcrowding for car traffic
& pedestrians on the sidewalks, the need for
environmental remediation, the impacts of over
development on infrastructure, overcrowded subway
trains, & social services for seniors that reach the
various racial, language and ethnic groups in the
diverse community. In our community meetings, we
have created five specific policy recommendations
in response to these consistent concerns.
Incentivize development of senior centers that meet
the needs of a diverse immigrant neighborhood
in community facility space within rezoned area
Flushing is home to a range of aging immigrant
communities that are seeking spaces to socialize
and receive needed social services and assistance.
In meetings with the Department of City Planning
& in FRCA internal meetings, residents and seniors
have expressed dismay over the lack of spaces
and services available to senior citizens, especially
given the diversity of immigrant groups in Flushing.
Spanish speaking seniors have noted that to receive
any type of senior center services or activities, they
must travel all the way to Jackson Heights. Korean
& Chinese speakers have also complained about a
lack of programs, services and activities for seniors.

34

Slide from DCPs May 21 2015 Town Hall Presentation

detailing existing senior centers

In the rezoning proposal, one of the potential

benefits identified in the Draft Scope with the current
zoning proposal is an increase in the expected
area of development for community facilities, from
48,500 sf under current zoning to 139,856 sf with
the rezoning, an increase of nearly 91,356.
However, NYC Zoning Text defines community
facilities in broad terms, and includes colleges &
universities, professional schools (but not business
or trade schools), dormitories for colleges, libraries,
museums, non commercial art galleries, long
term care facilities, monasteries, convents, non
profit hospital dwelling, philanthropic or nonprofit
institutions with sleeping accommodations, schools,
ambulatory diagnostic or treatment health care
facilities, clubs, community centerhs or settlement
houses, houses of worship, rectories or parish houses,
non-commercial recreation centers, hospitals and
related facilities, seminaries and welfare centers.
With this wide range of possible uses, it is essential
that the city work with developers to assure that
community facility spaces are used to support
the creation of senior citizen based services &
programs that are accessible to the various language
groups spoken by the Flushing community.
Increase 7 train service during rush hour
commutes & explore ways to reduce
fares for LIRR trips to Penn Station
Rush hour commutes from the Main St. terminal in
downtown Flushing can be a harrowing experience
for many, with intense overcrowding and pedestrian
congestion. With the potential of 2500+ additional
residents in new building created by the rezoning,

there will only be increased pressure on 7 train

ridership. To help alleviate pressure, the city
should work with MTA to maximize the number of
7 trains leaving from and returning to Flushing.
However, certain limitations around 7 train service
exist because of limited space for track storage, so
although taking every possible step to maximize
the number of 7 trains during rush hour commutes
is essential it probably will not solve the problem of
overcrowding on its own. The city should work with
the MTA and the LIRR to explore the possibility of
creating reduced fare passage from the LIRR station
in Downtown Flushing to Penn Station. Currently,
the fare for LIRR trip from Downtown Flushing to
Penn Station is $10.50 round-trip, more than double
the $5.50 cost for a round-trip subway ride.
Use city, MTA and other funds to develop
a bus depot that can reduce pedestrian
and car traffic in Downtown Flushing
One of the members of the FRCA, St. Georges
Episcopal Church, was directly impacted by the
high number of bus layovers in the Downtown area.
In 2012, the church was fed up by the number of
city buses parked around the church. Fr. WIlfredo
Benitez, the rector from St. Georges, shared that
they used almost the entire block around our church
as a parking lot and the fumes were unbearable.
It was a major health hazard for members of our
church and community. Alongside Councilmember
Koo, St. Georges was able to restrict the number
of buses in lay over in the area around the church,
but it didnt solve the long term problem for the
neighborhood - there is simply no adequate place
for buses to layover in an area with many bus lines.

35

Slide from Draft Scoping Hearing Presentation on Nov 17 2015

At the Draft Scoping Hearing held in November of

2015, the Department of City Planning shared that
after significant public input and feedback, there
were tentative plans to coordinate across agencies
to acquire a property of sufficient size to create
a layover station for the various bus routes that
connect in Downtown Flushing. As the FRCA, we
support this measure that could help to reduce
traffic and pedestrian congestion in the downtown
area and assuring that residents see reduced
health risks from exposure to bus exhaust.
FInally, as the citys own representation of the bus
station above shows, other cities have creatively used
bus transit centers not only as an opportunity to
create better traffic flow, but also as an opportunity

36

to construct affordable housing. If the city and MTA

were to acquire additional property to create a bus
transfer station, it would be essential to examine
the ways that they can leverage this city owned
property to create 100% affordable housing as well.
Create additional subway entrances in
rezoned area to reduce street congestion
One other important recommendation that has come
through DCPs outreach and community engagement
that the FRCA supports is widening and expanding
the number of exits from the 7 train. In talking to
tenants while door knocking and in FRCA community
meetings, it is clear that the 7 train commute and
overcrowding is a daily problems for thousands of

Flushing residents. We support finding additional

exits and entrances to the 7 train, particularly near
the rezoned area that can help reduce congestion.
Environmental Remediation and Sanitation Services
Two primary issues exist to assure that increased
development does not unduly increase
environmental damage in the Flushing area:
cleaning Flushing creek & assuring improvement
in services for solid waste and sanitation.
Flushing Creek Clean Up
At the public scoping meeting in November 2015
for the Flushing West Rezoning Proposal, Council
member Peter Koo said, As we know the creek is
basically a cesspool which fills up when it rains. No
one wants to go near it because it stinks. I have
not heard a real solution for a sustainable creek. I
expected Flushing West will change that, otherwise
who wants to live there? The Tallman Island
Wastewater Treatment Plant handles Flushings
sewage. But the facility works at capacity, so when
rainstorms flood the Citys sewer lines, the combined
sewage and runoff from city streets is dumped
straight into the creek without being treated.
Raw sewage from over one million square feet of
new Flushing West development will be above and
beyond present quantities of raw sewage which
already cause polluting CSOs (combined sewer
overflow) into Flushing Creek. The NYC Dept. of
Environmental Protections Flushing Creek Long Term
Control Plan (LTCP) was submitted to the NYS Dept.
of Environmental Conservation on Dec. 31, 2014. The
NYC DEP determined not to proceed with any of
the aggressive and expensive methods of reducing
CSOs into Flushing Creek. In addition to prohibitive
costs, DEP cites numerous technical challenges that
complicate implementing more effective methods

of reducing CSOs, such as building deep tunnels.

More likely methods to be used by DEP include
outfall disinfection by dosing with low levels of
chlorine for bacteria load reduction and building
bioswales (curbside gardens to collect storm
water). Even these less expensive and less effective
methods need to go through approval processes
and will not be implemented quickly, according
to DEP staff at DCPs Flushing Wests Community
Meeting on Feb 11, 2015. It is essential that city
find appropriate ways to clean Flushing Creek from
its current state of contamination and pollution.
Improve Solid Waste and Sanitation
Services in Downtown Flushing
In the FRCA Community Survey, 73% of respondents
complained about sanitation services. Walking
around downtown Flushing, it is hard not to observe
large numbers of bags of solid waste piled upon
sidewalks at most times. According to the Draft Scope
of Work, the Flushing West Rezoning is expected
to result in a net increase of more than 50 tons per
week, which requires an assessment of solid waste
and sanitation services. This assessments determines
whether the increase in solid waste produced may
overburden available waste management capacity or
otherwise be inconsistent with the Citys Solid Waste
Management Plan or with the State policy related to
the Citys integrated solid waste management system.
Even without new development, the City does
not appear to be meeting the collection and
disposal needs of downtown Flushing.

37

Section 7:
Conclusions

Councilmember Koo has provided real leadership

by standing with his colleagues and pushing for
changes in the Mayors Affordable Housing Plan
to include lower levels of incomes that are much
closer to the incomes of current Flushing residents.
Councilmember Koo will need to continue to
provide leadership to assure that the administration
creates a rezoning and neighborhood plan that
meets community needs. The Flushing Rezoning
Community Alliance has and is ready to continue
fighting and organizing for a more just rezoning.
In this report, we have highlighted our
clear recommendations that can create a
pathway to just rezoning, including:

Although these recommendations and steps will not

resolve the affordable housing crisis in its entirety, we
believe they are a step in the right direction to assure
that current residents benefit this rezoning process. In
addition, Flushing has a highly taxed and overcrowded
infrastructure, so it is essential that Councilmember
Koo and the administration work together to address
broader neighborhood concerns, including:
1

Incentivizing development of senior centers

that meet the needs of a diverse immigrant
neighborhood in community facility
space within rezoned neighborhoods

Increasing 7 train service during

rush hour commutes

Selecting MIH options that provide the deepest

level of affordability for Flushing West

Incorporating the results of the study of the

FAAB model to examine how density can be
used to leverage more equitable development

Creating additional subway entrances in

rezoned area to reduce street congestion

Using city resources to fill enrollment

gaps in SCRIE and DRIE programs

Using city funds to develop a bus

depot that can reduce pedestrian and
car traffic in Downtown Flushing

Maximizing residential zoning on Municipal

Lot 2 to create opportunity for 100%
affordable housing development

Environmental remediation of Flushing

Creek and improved sanitation and solid
waste services in Downtown Flushing

Passing anti-harassment and anti-displacement

legislation like the Certificate of No
Harassment before rezoning is finalized

Providing safety and job training standards

for workers combined with local hiring

38

Together these neighborhood and housing

recommendations offer Councilmember Koo and the
administration a pathway forward for a rezoning that
benefits, rather than displaces, Flushing residents.

Appendices
Appendix 1: Flushing Rent Stabilized Buildings by Status
The following table is an analysis of the types of subsidy and status of
rent stabilized buildings within the downtown flushing area.

39

Appendices

Appendix 2: Buildings Sold from 2010-2016 within

Flushing Study Area Containing Rent Stabilized Units

40

41

Appendices
Appendix 3: Co-op and Condo Sales within Rent Stabilized
Building in Downtown Flushing Study Area from 2010- 2016

42

43

44

45