SHOPPING NEEDS

Before the Urban Renewal Project, Lincoln Square was characterized by many small retail establishments in the ground floors of residential buildings. The map at top left diagramatically indicates the widespread distribution of these local stores throughout the community.

The availability and convenience of these shops to the residents then is in clear contrast to the situation now. The map at middle left shows the pattern in 1969. A significant reduction in the overall number of stores has occurred. Over 350 stores (about 380,000 square feet of retail space) were displaced from the renewal areas; thus, in several places there are now retail "gaps". The south and the southwest areas are virtually devoid of shopping facilities and, except for the areas near 72nd Street and Broadway, the community generally lacks an adequate range and quality of convenience goods and services. There are, for example, too few apparel stores, especially for children; grocery and food stores are typically very crowded and their locations require long walks for many residents to reach them. In most of the community it is difficult to buy even a newspaper or other simple items which a person purchases on impulse.

Ground floor retail space in 1969 totaled about 840,000 square feet in 540 establishments. Much of this is concentrated on 72nd Street, a retail district that serves a larger area than Lincoln Square. Studies of sites likely to be developed suggest that 35,000 square feet of retail uses will be displaced and about 110,000 square feet seem likely to be displaced soon.

Increases in daytime and resident population could increase retailing substantially. The location and the types of these new shops and services will be very important. The map, bottom left,

Retail Facilities: former

present

suggested future

DEVELOPMENT: RECENT, SCHEDULED AND PROSPECTIVE

Lincoln Square has been changing rapidly. Since 1956, when the Urban Renewal Project was begun, almost 30% of the land there has been redeveloped and over $400 million has been invested in construction; about 20,000 residents have been displaced. This map indicates the areas which have been redeveloped and those subject to redevelopment if plans are carried out and current trends continue. Most of the new development is comprised of institutions and luxury apartment houses.

The Community Action Planning Program seeks to balance the new luxury development with housing and services for low and moderate income people, particularly the elderly, and seeks to guide the physical changes toward a more workable, humane urban environment.

recent development

scheduled development

prospective development

railyard air-rights and
possible waterfront development

The Council and City rejected both of those arguments and they now have a solid record of achievements to back up their convictions. Despite the difficulties, commitments have been made and action has been taken to confront the changes in Lincoln Square, to guide some and reverse others. These things have been accomplished:

1. Two large apartment buildings for elderly residents will be provided by the NYC Housing Authority; an existing hotel, the Bradford, will be acquired and renovated—the first such project in NYC,—and a new building will be constructed on 67th Street at Amsterdam Avenue.

2. An amendment to the zoning ordinance—the Lincoln Square Special District—has been passed, and put into effect, to encourage private development to respect important overall urban design principles and to provide public pedestrian amenities such as arcades and bridges.

3. The sections of the community characterized by sidestreet brownstone houses have been rezoned to protect them from encroachment by high-rise luxury or business buildings.

4. The former Phipps Houses have been retained for their residents, at least for a time, despite several threats of demolition.

5. The unworkable locations of two municipal parking garages were successfully changed; a better site has been found for one and an apartment building for the elderly will be built over it.

6. Other programs, started before the Council-City partnership, are continuing: the Lincoln Square Community Council cooperative apartments; the Strollway along Broadway; the Amsterdam Houses extension.

7. The Council successfully opposed two projects that fit neither its own nor the city's objectives. The first was an application before the Board of Standards and Appeals to construct, in a brownstone area, an apartment building larger than the zoning allowed. The second was a proposed facility for STOL aircraft; working with an ad hoc group, (Committee Against the West Side STOLport), the Council helped analyze the problems of this waterfront project, which was later abandoned.

There have also been reverses. The Council and the Department of City Planning initially opposed an application before the Board of Standards and Appeals which sight increased building bulk—higher than that allowed by existing or Special District zoning—for the Lincoln Plaza project at 63rd street and Broadway. The ward ruled in favor of the builder and several subsequent court actions also failed to reduce the bulk. Except for its size, however, the building will conform to the Special Zoning, with an arcade along Broadway, a plaza, and small shops. Meanwhile the real estate pressures persist and the rebuilding of Lincoln Square continues. Much work remains to be done. The following sections of the report describe this work.

First is a summary of the total Community Action Planning Program as it is today.

Second is a description in more detail of the findings and programs for housing, community services, transportation and parking, and pedestrian spaces.

Third is an outline of the steps needed to assure a continued record of successful action.

## ACHIEVEMENTS

Four non-luxury housing developments are now scheduled for Lincoln Square, two as a result of this Program. One of these is the Bradford Hotel, which the New York City Housing Authority will purchase and renovate for elderly residents; the other is a combination project of elderly housing and a municipal parking garage. The areas characterized by side-street brownstone houses have been re-zoned to protect them from intrusion by large buildings; the Lincoln Square Special District is in force. The threat of demolition of the former Phipps Houses has been temporarily averted. Two unworkable sites for parking garages and a large incompatible facility for STOL aircraft were successfully opposed. Two applications for buildings exceeding zoning limitations were challenged, and one was defeated.

HUDSON RIVER

THE RECORD OF ACTION

## SPACES FOR WALKING

There are rare opportunities in Lincoln Square to create for pedestrians an extensive and attractive network of walkways, plazas, parks and footbridges. Two paths with great potential are illustrated here: an east-west one which could extend from Central Park to the Hudson Riverfront, linking Lincoln Center, Amsterdam Houses and the future development of the railyard air-rights; and a north-south one, providing a traffic-free "school-way" between the community's two elementary schools, which are paired, and connecting two residential areas with many children.

The major buildings, existing and scheduled for construction, which would define the paths and spaces are, from right to left:

1. Ethical Culture Society

2. Westside YMCA

3. The Century Apartments

4. Lincoln Plaza Apartments

5. Lincoln Center's New York State Theatre

6. The Metropolitan Opera

7. Damrosch Park

8. Amsterdam Houses

9. The New York Times plant

From bottom to top:

10. Roosevelt Hospital housing*

11. P.S. 191

12. Former Phipps Houses

13. Amsterdam Houses extension*

14. LaGuardia High School of Music and Arts*

15. Martin Luther King High School*

16. Lincoln Towers

17. The Bradford Hotel

18. P.S. 199

19. Sherman Towers Apartments

20. The Ansonia Hotel

* indicates planned construction

## TRANSIT, TRAFFIC AND PARKING

Lincoln Square is a corridor to the Manhattan Central Business District and real solutions to traffic problems would be extremely costly or require regional controls. Nevertheless significant improvements appear feasible:

* Reversal of flow in sections of Central Park West and Broadway.

* Three new "interceptor" garages at approaches to Lincoln Square. One such garage is now scheduled.

Improvements in transit service also appear feasible:

* Use of existing capacity on the IRT subway

* Express subway service to Lincoln Center for peak-load periods.

* More frequent bus service and route adjustments.

## SPACES FOR WALKING

Because of the heavy continuous flow of through-traffic the rapidly growing numbers of pedestrians require a special system separated from automobiles. A network is recommended that provides such a system including open spaces for the elderly, safe "schoolways" for students and the relocation of subway entrances. The action needed:

* incorporate the elements of the overall system in each new building project, public and private.

* map pedestrian easements over the Penn Central railyards.

## NEXT STEPS

The next steps are as important as the past steps. If the objectives are to be fully achieved:

* The City should continue the partnership with the Council;

* The Council should consider (a) retaining an executive director to follow through on the programs and projects; (b) a periodic publication; and (c) broader representation.