An Introduction for newcomers to the City
Gabriel Negrón Torres briefly introduces the City of Yes Zoning for Housing Opportunity with some of its more preeminent proposals to address the housing crisis in New York City
By: Gabriel Negrón Torres
Whether from other parts of the States or a foreign country, you just arrived in New York City to start your journey at Wagner, and you might suddenly be wondering what this City of Yes (COY) and Zoning for Housing Opportunity (ZHO) thing is all about. I know that was my case last year, when COY for Carbon Neutrality (the first out of three COY initiatives) was under review by the NYC Council. Here, I will explain what ZHO is and summarize its proposals for anyone interested who may have heard of COY for the first time recently. I will preface by saying that this is not an analysis or appreciation of any of the proposals, but just an explanatory introduction.
City of Yes is a set of initiatives in the form of zoning text amendments proposed by the mayor’s administration to address the city’s needs for an equitable and sustainable future. The first initiative, COY for Carbon Neutrality, was approved by the City Council and signed by the mayor last December, with the purpose of decarbonizing NYC by reducing waste and improving energy and transportation efficiency (you can find full details of the specific proposals here). The second initiative is Zoning for Economic Opportunity (ZEO), which was approved at the beginning of last summer to remove outdated zoning limitations on businesses (specific proposals here). Lastly, we arrive at ZHO, the final COY initiative, which, in the words of the mayor himself, would allow the creation of “a little more housing in every neighborhood.”
As you might have experienced while moving to the city, finding housing in New York can be tedious and inaccessible for many, especially for vulnerable communities. With historically low vacancy rates and restrictive zoning regulations, New York City’s housing supply is failing to meet increasing demand, leading prices to skyrocket over the past few years. In addition to zoning, high construction costs and inflation make it harder to produce new and affordable units across the city, even in as-of-right zones where residential development is permitted. Some residents and policy experts have said during public hearings and community board reviews that ZHO will not be enough to address the housing crisis but can lead the city in the right direction.
The text amendment has more than a dozen main proposals sorted into four categories; low-density, mid and high-density, citywide proposals, and miscellaneous. I will be discussing a few key amendments from the first three categories.
In low-density neighborhoods (R1-R5 residential zoning districts characterized by single and two-family homes), ZHO introduces a set of proposals that would allow for the construction of new units without requiring rezoning and preserving the character of the existing neighborhood. Town Center Zoning and Transit Oriented Developments (TODs) are two proposals that would slightly upzone low-density areas where it makes sense to do so the most. Town Center Zoning would re-introduce new housing above businesses on commercial streets in low-density neighborhoods, something that was allowed before the 1950s but is currently prohibited under the Zoning Resolution. As for TODs, ZHO would allow for the development of modest, three- to five-story apartment buildings on large lots in low-density areas that fall under the newly proposed “greater transit zone” (areas that are less than half a mile away from a subway or railway station). The Accessory Dwelling Units (ADUs’) proposal aims to legalize and encourage the creation of smaller, independent housing units on the same lot as existing homes, such as basement apartments or backyard cottages, which could increase housing options within existing neighborhoods without altering their overall character. The last proposal for low-density neighborhoods is district fixes, which seeks to update outdated zoning regulations in specific neighborhoods to better reflect current housing needs. By adjusting zoning rules, this proposal aims to make it easier for families to adapt their homes to their needs where current zoning does not allow it.
In medium and high-density neighborhoods, ZHO proposes the Universal Affordability Preference (UAP), which would allow buildings to include at least 20% more housing if the additional units are permanently affordable. This approach aims to increase the availability of affordable housing in areas where it is most needed, while encouraging more equitable development throughout the city. However, it is important to understand that UAP defines affordability as 60% of the Area Median Income (AMI), which many community boards have flagged as still unaffordable for disadvantaged communities.
Under the citywide category, ZHO is proposing some of the most avant-garde, and controversial changes to the Zoning Resolution in recent history. Starting with lifting parking mandates in residential districts, the city is taking a bold step toward modernizing its urban planning. By eliminating outdated parking requirements, the city aims to prioritize building more housing over car storage, reflecting a shift toward equitable, people-oriented development. These changes, though controversial in lower-density neighborhoods that have limited public transit options, are designed to address the pressing needs of a growing population while also reducing the environmental impact of urban sprawl. The second proposal is about commercial buildings conversions to residential. ZHO aims to broaden the current guidelines by extending the allowable cut-off date for conversions from 1961 to 1991. This change would enable newer commercial buildings in various parts of the city, beyond Manhattan—where conversions are currently permitted—to be transformed into different types of residential buildings, including small and shared housing. ZHO will lift the prohibition of shared housing and buildings with only studios and/or one-bed apartments, which could provide a variety of options to residents.
You can find the full list of ZHO proposals (available in Spanish and Chinese), examples of how these proposals could impact different neighborhoods, and the complete text amendment on the Department of City Planning Website. What’s next? ZHO has had several public hearings at the City Planning Commission and the Community Boards across the boroughs over the past three months. The Commission and the City Council are expected to vote on ZHO at some point this fall. Stay in the know by visiting the Zoning Application Portal for updates.