Money and Politics kill Community
Indirect Displacement: Politically Correct Ways Penalize Community
By: Thomas V. Sobczak and Barbara LeGoff
Summary:
The decision by the team composed of the Port Authority of New York and New Jersey, the State of
New York Urban Development Corporation and the City of New York to develop the under utilized waterfront
along the East River in Western Queens has created a situation which is causing the displacement of the
neighborhood's poorest peoples. The Project has been designated, Queens West Development. It is under the management of the Queens West Development Corporation, a subsidiary of the New York State Urban Development Corporation. The designated and approved site does not have any residential stock within its borders. It is for this reason that the local New York City Councilman and the Management of Community Board No. 2 (Queens) support the statement by Queens West Development Corporation declaring that the project has no direct displacement. Based upon this study it appears that as many as 10,599 individuals might be displaced as the project achieves buildout. Elected officials have chosen to call this loss "Indirect Displacement" in a manner which distances themselves from the occurrence of displacement caused by the project at hand. It will be interesting to see the modifications which occur under a Republican Governor.
History of Hunters Point
Located along the East River in Long Island City, Queens, Hunters Point is a unique mix of residents,
retailers, artists, factories, and warehouses - all located in New York City's oldest industrial center. The
Hunters Point area is bounded on the north by the Queensborough Bridge, on the south by Newtown Creek - the border between Brooklyn and Queens, on the west by the East River, and on the east by Van Dam Street.
The Hunters Point area has a current population of 23,141. Residential buildings are interspersed
among low-rise industrial buildings giving Hunters Point a unique character. Some of the industrial streets
are built of cobblestone while others are paved and lined with trees tended by homeowners. The warehouses and lofts have attracted numerous artists who have located working studios here. Retailers cater to local businesses and industrial sector employees as well as local residents. This low-scale and laid back neighborhood currently offers lots of light and stunning views of the Manhattan skyline. It is very accessible to public transportation or automobile travellers. Hunters Point is the next station from mid-town Manhattan via the Number 7 , E and F subway.
The Hunters Point area of New York City is one of the oldest sections of Queens. Located in the
western part of Queens directly across the East River from midtown Manhattan, Hunters Point has had an
important place in the development of New York City.
The area grew rapidly in the 1850's when both the Long Island and the New York and Flushing
Railroads used Hunters Points as a transfer point for their Manhattan bound ferries. By the late 1800's a
residential community grew in the areas around St. Mary's Church and along the area of 45th Drive and 21st Street. An industrial and residential boom was spurred between 1909 and 1920 by the construction of six major connections across the East river; the Queensborough Bridge, 1909; the Pennsylvania Rail Tunnel, 1915; the Hell's Gate Rail Bridge and the Second Avenue El crossing on the Queensborough Bridge, both 1917; and the BMT subway tunnel, 1920. The opening of the IND subway tunnel in 1933, the Triborough Bridge in 1936, and the Queens Midtown Tunnel in 1940 completed Hunters Point's links to Manhattan.
Following World War II, the general prosperity in the country contributed to the increased growth in
Hunters Point and Long Island City. By 1955 Hunters Point had one of the largest concentrations of industry
in the United States. As the district developed, industry, due to its water orientation, located primarily along
the East River and Newtown Creek. As industrial growth continued, several residential neighborhoods,
Hunters Point included, became engulfed by industrial activities.
In 1960, the new New York City Zoning Resolution, perceiving a conflict between residential and
industrial uses, decided that, in order to retain the industrial community, the zoning must provide them with
new expansion space. The existing residential land, it was felt, would, under a M3-1 (heavy industry)
designation, eventually revert to industrial use. There was the underlying belief that residential uses should
not be permitted in areas of obnoxious heavy industry. It was assumed that the zoning resolution should work towards the separation of such incompatible uses. The City's official attitude was one of consistent support for the M3-1 smoke stack industry zone.
The residents, however, were concerned about the future of their neighborhood. The residential
community, by being zoned M3-1, lost the privileges and rights of a residential zone. City services were
curtailed to residents in an industrial zone; no enlargements of existing residences were allowed; no new
residential units could be built; and loans and insurance were difficult, if not impossible, to obtain.
Hunters Point had been home to many of its residents for generations and these people were
unwilling to leave their homes and roots. In the late 1960's, they appealed to the City Planning Commission
to have their area rezoned to a mixed use zone (residential/industrial). However, at that time, the attitude of
the City was one of tremendous concern over the migration of industry from New York City and no action was taken on the mixed use application.
Finally, in 1981, The Hunters Point Community Council, an organization representative of the
residents who refused to leave Hunters Point, convinced the City to approve the designation of a part of
Hunters Point as a special Mixed Use Zone like that in Coney Island. The boundaries of the zone were drawn closely to encompass the areas where there was a residential/industrial mix. The intent of the zone was to legitimize the residential community and to allow the existing residents to remain and improve their properties.
The Hunters Point Mixed Use District did not, however, intend to foster major new residential development.
This is changing as the PA of NY & NJ and the East River Tennis Club obtain approval for major residential
developments.
Also, in the late 1960's residents along 45th Avenue petitioned the Landmarks Commission to
designate their block of brownstones a Landmark block. Their request was granted and the block is now
protected by landmark status. The designation helped encourage the already occurring renovation and
restoration of homes on that and neighboring blocks.
In the early 1970's, than the remaining public educational facility in Hunters Point, the old P.S. 1
building was to be auctioned by the City, the Hunters Point community organized to save the building. The
Institute for Art and Urban Resources entered into a "reuse" arrangement with the City for the use of the P.S. 1 building. Initially, the Institute used the building for inexpensive studio spaces for artists. A few years later, the Institute developed a gallery and now has a regular exhibition and performance schedule.
In much the same way as the original SOHO development, the inter-relationships between industrial
areas and arts "production" were seen as a great asset of the P.S. 1 location. The P.S. 1 studios were not,
however, residential spaces. Yet, as a result of the artists and gallery viewers presence, populations, who
otherwise would have been unlikely to go to Hunters Point, discovered this "new" neighborhood and revitalized it by supporting local merchants and restaurants.
The Hunters Point waterfront had been underutilized for many years and in recent years private
recreational uses developed on some of the waterfront sites. Two tennis bubbles were built directly on the
waterfront and another was located in an under used industrial building a block back from the water. These
tennis bubbles and swimming pool are private clubs, much of whose membership is from Manhattan. As in
the case of P.S. 1, these recreational clubs brought Hunters Point to the attention of persons who would
normally have not had reason to visit.
Prudenti's Restaurant had been a landmark restaurant in Long Island City for many years on 50th
Avenue. It was relocated in the Queens Bank Building on Second Street. With the influx of people there was an increase in interest in restaurant space in Hunters Point. The Crab House opened across from Prudenti's and, in 1985, a floating restaurant adjacent to the 44th Drive Pier was opened.
Interest in the potential for large-scale residential development has been a recurring theme in the
history of Hunters Point. As early as 1946, Riverview, was proposed as a "complete residential community
of 50,000 people in the heart of NYC". The proposal called for a 233 acre site to be rezoned from industrial
and marginal residential. The assumption was that there was adequate industrial space in New York City and that new industrial space should be located in outlying areas and not in a prime residential waterfront site. This, first Riverview concept, however, never went beyond the proposal stage.
In about 1968, the EastPoint development proposal was made. The plan was to create a residential
community of 60,000; to renew industrial development by 5,000 jobs; and to strengthen and improve the
existing residential community. The project would have encompassed 192 acres. Both existing residential
and industrial uses would, however, have been, to some degree, displaced by the development. The plan,
being a total package, would have provided all needed infrastructure improvements.
In 1974, the Municipal Art Society did a study of the potential of this part of Long Island City. The
report which looked primarily at the transportation issues in the area, also offered a comprehensive guide
towards a "Master Plan for L.I.C.". This plan, like earlier proposals, concentrated on major redevelopment
and new development, both residential and industrial.
In 1985 another plan of broad redevelopment nature was the Queen's Borough President's plan for
the Queens Cultural Arts Center. This proposal called for not only the development of a Regional Arts
Complex, but also, for the development of an arts district that would have an "interwoven joint development
of housing, retail stores, office space, and possibly a hotel". "Joint development and control of a core area
are the key to creating a self-supporting arts center... Central to the concept presented in the report is the
large-scale neighborhood revitalization project to occur around the Arts District."
Interest has been expressed in Hunters Point as a new location for major Commercial Office space.
In 1982 Lazares Freres embarked on a major office project in Hunters Point. The plan calls for the potential
of providing 4,000+ new jobs. The proposal envisaged the Hunters Point area as becoming a new office `````area whose proximity to midtown Manhattan would make it eminently desirable.
In response to much of the speculation and new activities, a number of studies were undertaken to
analyze what was actually happening in Hunters Point and to recommend appropriate policies and actions.
Three of these studies were concerned specifically with the industrial health of the area. The Queens
Chamber of Commerce, in conjunction with Queens College, completed a study of a 20 block industrial area in the Northwestern section of Hunters Point. The study found the area to be healthy industrially with few vacancies. The study did, however, uncover many problems facing the industries and proposed the creation of an "In Place Industrial Park".
Indeed, the Public Development Corporation, which had also studied the area, proceed to develop
an In Place Industrial Park in Hunters Point and working with the Hunters Point Community Development
Corporation has embarked on a program of helping industries stay and expand in the Hunters Point area.
A study was done by Interface on the industrial health of Long Island City, and area which, while
including Hunters Point, is somewhat larger. The Interface study, also, found L.I.C. to be an extremely healthy industrial area, one of New York City's strongest. The vacancy rate at the time of the study was only 5% and, while the character and type of industry in L.I.C. had changed, the desirability of the location remained. The Interface study made recommendations for addressing the problems faced by industries and indicated the need for the City to lend support to strengthening and stabilizing the industrial community.
All three of the industrial studies were particularly concerned about the impact that any furthering of
a residential community could have on industry. They cited the experiences in Manhattan where industrial
displacement appeared inevitable when residential conversion took place in industrial areas.
The Department of City Planning conducted a thorough survey of all the industries in the Hunters
Point area. Through mail and telephone questionnaire, the Department of City Planning documented the
needs and health of the industrial community. This information was used to help inform the City's policy on
the future development of the Hunters Point waterfront as part of the New York City Integrated Waterfront
Developments.
The Hunters Point Waterfront Development Project approved by NYS UDC, Port Authority, and NYC
EDC has preconstruction activities underway. With 6,400 new luxury housing units, 2.1 million square feet
of office space, a 350 room hotel, and almost 300,000 sf of retail space, this project will bring a tremendous
influx of business into the existing community. This project, Queens West, will be the first after 53 years of
laying in plans to achieve a physical result.
DEMOGRAPHICS
1990 Hunters Point Area Population
23,141 50% MALE, 50% FEMALE
Racial Composition
45.7% White,
34.9% Black,
7.8% Asian,
11.3% Hispanic Origin
Total Residential Population 6991
Age Composition
0-4 7%,
5-9 6.5%,
10-14 6.1%,
15-19 3.3%,
20-24 8.8%,
25-34 22.7%,
35-44 15.4%,
45-54 7.8%,
65-74 15.8%,
75-84 3.2%,
85+ 0.9%,
18+ 76.8%
18- 23.2%
MEDIAN AGE 31.7 YEARS OLD,
MALE 30.8,
FEMALE 31.7
1990-INCOME LEVELS
0-15,000 45.8%,
15,000-24,999 20.7%,
25,000-34,999 14.9%,
35,000-49,999 11.5%,
50,000-74,999 5.5%,
75,000+ 1.6%
Housing Units
TOTAL 8760
OCCUPIED 8451
VACANT 309
OWNED 9.6%
RENTED 90.4%
VALUE OF OWNER OCCUPIED UNITS
$0-50,000 5.7%,
50.000-99,000 10.9%,
100,000+ 83.4%
RENT OF RENTER OCCUPIED UNITS
$ 0-250 33.6%,
250-499 37.8%,
500-749 22.9%,
750+ 5.7%
MEDIAN RENT: $360
AVERAGE RENT PER SQUARE FOOT: $14-24
HOUSEHOLDS
TOTAL 8451
AVERAGE SIZE: 2.25 people
TOTAL FAMILIES: 5151,
AVERAGE SIZE: 3.25 people
MARRIED COUPLES: 49.1%,
HOUSEHOLDS WITH CHILDREN: 56.5%
NUMBER OF STORES
66
BREAKDOWN:
DELI & GROCERY 4
FOOD & DRINK 18
GENERAL MERCHANDISE & HARDWARE 7
PHARMACIES & DENTAL CARE 3
NEWS STAND & CARD SHOPS 3
COMMERCIAL & INDUSTRIAL SHOPS 27
TAXI & AUTO REPAIR 4
US Department of Commerce Census Tracts affecting Hunters Point
1 (QWDC project area contains no occupied residential buildings)
7
19
171
179
191
197
Housing Conditions
Most of the existing housing stock in Hunters Point was built between 1875 and 1930. Half of the
housing units are in buildings with less than six units, including largely owner-occupied small residential and
mixed-use buildings. Ninety-four percent of the households rent and the median rent is a moderate $360.
Yet, because over half the housing is not rent-regulated, rental households are at a high risk for
displacement due to development pressures in the area.
The most significant development looming over the Hunters Point community is from "Queens West"
a partnership of NYS Urban Development Corporation (UDC), NYC Economic Development Corporation, and Port Authority of NY and NJ. Their approved plan calls for a large-scale development project, including 6,400 housing units and 2.1 million square feet of office space, in addition to a hotel, retail uses, and parking. This project will have an enormous impact on residents of our existing community. Despite the changing market conditions, UDC has been moving forward with their plans for this large-scale construction.
Target Population
In terms of Demographic information, the Hunters Point community is 50% Caucasian, 32% Hispanic,
11% Afro-American and 7% Asian-American. Our best guess is that the 1990 census understated the
immigrant population by 100%. Our Senator is George Onorato. Our Assembly Person is Catherine
Nolan. Our City Councilman is Walter McCaffrey. We are part of the 108th Precinct. The Precinct Headquarters is on 50th Avenue in Hunters Point.
Political strategies to achieve outsider goals are based in people pleasing endeavors. People like to
be recognized.
a. Assistance -- Community groups are expanding services to the extremely low income community
members. They attempt to create unique arrangements which allow single mothers to "share" apartments,
allow Intergenerational "adoption" whereby the large population of senior citizens can work with youth to
provide experience and values lost in working family environments and to locate apartments for low income
families. This program finds local space to alleviate the beginnings of displacement. Space located is
25% outside of the Hunters Point Community.
b. Rehabilitation -- Community groups seek to take over, fix-up and manage current "in-rem" and
receivership apartments. Tenants have been organized at three such apartment buildings. They are willing
to participate to combat displacement. Activists have discussed assuming mortgages. Banks do not object to their plans. Minority youth are involved to translate for and motivate their parents to participate to fight displacement. Programs to empower the poor are not supported by any elected official involved ion
the area.
c. Hunters Point Community Council, a community service group, has organized minorities in the
community in tenant's associations, in merchants associations and as active members of their Board of
Directors. They encourage residents to involve themselves to the degree with which they are comfortable.
HPCC has suggested an ice skating rink replace the originally planned supermarket.
Housing Services to slow displacement in Hunters Point Today
A local community service group, provides a community revitalization program with special emphasis
on the provision and maintenance of affordable housing. In response to the needs of the Hunters Point
Community. Housing efforts include: 1) planning and advocacy to provide affordable housing in Hunters
Point and 2) direct housing services to local residents.
a.. Planning and Advocacy for the Provision of Affordable Housing
Efforts are in progress by the Hunters Point Community Coalition, an activist group, to
increase the provision of affordable housing through both planning and advocacy. The Coalition is very
actively working to get affordable housing built into Queens West. They call themselves advocates for the
sane development of affordable housing in Hunters Point. Unfortunately no one has defined "affordable".
b. Housing Services
Another group provides housing services to landlords and tenants in order to maintain a
housing balance in Hunters Point. Through a NYC HPD sponsored tenant services contract, they educate
local tenants on their housing rights, assist them with resolving landlord tenant disputes, and form tenants
associations. They are also working with local landlords, encouraging them to take advantage of special loans for rehabilitation, major capital improvements, and J-51 tax abatements. This is not successful as landlords do not envision sufficient rent increases nor are they ready to involve themselves in a community which may be overrun by high rise construction.
Activist current housing activities in Hunters Point include tenant counseling and organizing
with emphasis on teaching the minority community their rights and responsibilities. HPD sponsored housing specialists in 1993 assisted the formation of six (6) 44th Drive Tenants Associations. They are facilitating discussions between the tenants and the owner/bank which has recently foreclosed on certain properties.
We anticipate repairs to the hundreds of code violations on one 17-unit property will provide additional
apartments for those affected by the Queens West Project. At this point neither Queens West nor
Government is involved. Activists and affected residents boot strap to save their homes.
Current Residential Displacement.
Hunters Point has experienced a significant change in the economic forces behind residential
displacement. Many local residents are being offered the opportunity to locate more affordable housing
outside of Hunters Point. Local landlords are experiencing difficulty in finding tenants for their apartments as they raise rents. On the other hand, some landlords are warehousing apartments in planning for the rush of construction workers who will want to live near their job weekdays and commute home on weekends.
Forecast of Indirect Displacement in Hunters Point
The US HUD, in a telephone conversation requesting information concerning how to forecast
displacement, stated that their experience in the area of a major project is that all those earning $15,000 or
less are subject to the immediate effects of displacement. Using the US Department of Commerce,
Bureau of the Census 1990 results one finds that 45.8% of the residents of Hunters point earn $15,000 or less. The total households identified by the census are 8,451. This means that as many as 3,871 households will be subject to the residential displacement the Councilman called "Indirect". As the average household size is 3.25 people, we can further extrapolate that in the worse case as many as 8,710 individuals (adult and Children) will be affected in the defined area. This is 37.6% of the current residential
population.
Narrowing the focus to the area immediate to the project shows that 6,691 residential units exist in
the area near the project site. If indirect displacement was assumed only in this area we find statistically that the number of affected households shrinks to 3,065 (only 106 families less that the original worse case. In any case 6,896 individuals might be forced to relocate. This is less than my first extrapolation, but still involves 29.7% of current residents.
Examining the potential for displacement from the general head count in the Census, i.e., 23,141
establishes the worst case value, 10,599 individuals potentially displaced (45.8% of the current residents).
In any case calculated from current statistics, the displacement potential is significant ranging from a low of
6,896 people to a high level of 10,599 people.
Conclusion
The residents of the community of Hunters Point are being and will continue to be negatively affected
by progress. Individuals who moved to Hunters Point and accepted the NY City mandated mixed use
environment as a consequence of gaining suburban privacy in the center of an urban environment are losing
their reason for being in Hunters Point. Poor families who migrated to Hunters Point because the rents were low are losing to progress. Families who grew accustomed to the loss of services in the form of closed schools, lack of sanitation services, minimum police presence and minimum fire protection, now must deal with change which takes away their homes. Progress has caught up with this moderate neighborhood that has existed minutes from central Manhattan unknown to the majority of NYC residents.
The QWDC project may be good for the New York City and State economy yet one cannot help but wonder if the cost to human live is worth the effect on neighborhood and community. In the foregoing, there is no record of any elected official or the Community Board speaking out to minimize displacement within this small constituency.