The Food Retail Expansion to Support Health Program (FRESH) was developed in response to a citywide study, Going to Market, conducted by the Department of City Planning in 2008, which highlighted the widespread shortage of neighborhood grocery stores providing fresh food options in several communities of New York City. The FRESH Program offers zoning incentives and financial benefits in these underserved communities. Its goal is to encourage the development and retention of convenient, accessible stores that provide fresh meat, fruit and vegetables, and other perishable goods in addition to a full range of grocery products. The program offers a set of zoning incentives that provide additional floor area in mixed buildings, reduce the amount of required parking for food stores and permit larger grocery stores as-of-right in light manufacturing districts. The financial benefits, administered by the NYC Industrial Development Agency, exempt or reduce certain taxes for qualifying FRESH food stores.
NEW! See Updated Supermarket Needs Index and where FRESH food stores have received approval for FRESH zoning incentives. (For more information, see “Ongoing Analysis”) .
A developer seeking to utilize the zoning incentives of the FRESH Program must demonstrate that the primary business of the retail space is the sale of food products. Prior to obtaining a building permit, the proposed store must be certified as a FRESH food store by the Chairperson of the City Planning Commission (CPC), verifying that the store meets the floor area requirements, the space is legally committed to use as a FRESH food store, and a grocer has agreed to operate a FRESH food store in the developed space.
The requirements for a FRESH food store are::
In addition, all certified FRESH food stores must also display the FRESH sign at the entrance to the store, indicating participation in the FRESH program and that fresh foods are sold inside.
A development would be permitted an additional square foot of residential floor area in a mixed building for every square foot provided for a FRESH food store, up to a maximum of 20,000 square feet. The CPC may, by authorization, allow an increase in the maximum building height, up to 15 feet, to accommodate the additional floor area.
In FRESH eligible M1 districts, a FRESH food store with up to 30,000 square feet of floor area would be permitted as-of-right, rather than requiring a special permit. Parking requirements in some zoning districts have been reduced for FRESH food stores. In M1 and C8 districts, the first 15,000 square feet of floor area in a FRESH food store is exempt from minimum parking requirements; in C1 through C6 districts, FRESH food stores with less than 40,000 square feet of floor area do not have to provide parking, except that these reductions in parking do not apply in portions of Manhattan Community District 12, Bronx Community District 7, Brooklyn Community Districts 5, 16 and 17 and the Special Downtown Jamaica District.
The program requires a continuing commitment to operate a FRESH food store. However, in the unlikely event a FRESH food store is not economically viable on a particular site, the space may be converted to another use by CPC authorization or certification by the CPC Chairperson.
The FRESH Program is applicable in shopping districts in selected neighborhoods. These areas encompass portions of Manhattan Community Districts 9 through 12, portions of Bronx Community Districts 1 through 7, portions of Brooklyn Community Districts 3, 4, 5, 8, 9, 16 and 17 and Community District 12 and the Special Downtown Jamaica District and portions of Community Districts 1 and 12 in Queens.
The zoning text amendment is now in effect. In addition, discretionary tax incentives are available through the NYC Industrial Development Agency (IDA). The tax incentives are discretionary and will be assessed on a per case basis for eligibility in the FRESH program.
DCP has updated the analysis to compare grocery stores and supermarket landscape across the city so that neighborhoods can see for themselves whether their Community District is well-served or in need of additional fresh food stores. The Supermarket Needs Index (SNI), DCP’s metric, shows that many neighborhoods remain underserved by fresh food stores. The Index, comprised of a set of important factors – concentration of stores, walkability, access to car, presence of families with children in poverty -- helps communities, food policy researchers and supermarket operators assess the number of additional stores necessary to meet the needs of the area.
Sources: Supermarkets and grocery store data is a subset of the New York State Department of Agriculture and Markets 2018 Retail Food Stores data found here. The Department of City Planning included stores that were over 5,000 square feet and whose primary purpose was the sale of food for consumption at home. The Supermarket Needs Index was created by the Department of City Planning using New York State Department of Agriculture and Markets 2018 Retail Food Stores data in addition to American Community Survey data on population counts, household access to a car, and the presence of families with children in poverty.