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How to Make New York City More Affordable: 40 Big Ideas

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How to Make New York City More Affordable: 40 Big Ideas

Is New York City running out of ideas to solve its once-in-a-generation affordability crisis? Bleak new superlatives about the cost of living are piling up: About half of city households are struggling to pay for basic necessities, New York has the lowest apartment vacancy rate in a half-century, and about 146,000 homeless children are enrolled in local schools.

Many New Yorkers say that politicians are not doing enough to address the magnitude of the problem. So we asked dozens of New Yorkers — from think tank experts to delivery workers to high school newspaper editors — to offer one idea, big or small, that could help break the logjam. Here are some of the most provocative suggestions on an issue that is sure to dominate city politics this year, as voters choose a mayor.

Interviews have been edited and condensed for clarity.

To build more housing

Construct affordable housing on public housing parking lots …

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The Rev. David K. Brawley, pastor of St. Paul Community Baptist Church in Brooklyn

There’s probably not a week that goes by when I don’t have to say goodbye to members of our congregation, because they can’t afford to stay here. We want to keep people in this city who have built this city.

We’ve identified New York City Housing Authority parking lots that could create about 15,000 homes for seniors. Seniors can leave oversized apartments in New York City Housing Authority developments, and that way families on wait-lists for NYCHA housing can move out of shelters and into public housing.

on top of public libraries …

Brian Bannon, who oversees The New York Public Library’s 88 branches

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Projects like the newly opened Inwood Library and the forthcoming Grand Concourse development exemplify how libraries can become engines of opportunity.

… and use old Staten Island Ferry boats in dry docks as temporary housing

Nicholas Siclari, chair of Community Board 1 of Staten Island

Allow housing in backyards

The Rev. R. Simone Lord Marcelle, president of the Southeast Queens Chamber of Commerce

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Homeowners should be able to allow their adult children to erect a foldable, tiny home in their backyards with a simple permit. This will solve the housing problem for many, and free up some of the overcrowded shelters costing the city so many billions of dollars.

Build more six-story buildings, and fast!

Eric Kober, senior fellow at the Manhattan Institute, a conservative think tank

Back around 1960, building rules allowed six-story apartment buildings almost everywhere in the five boroughs, and far more housing was built than today. After 1961 the rules changed: Large areas now allow only small homes, or don’t allow housing at all. There’s no way for entrepreneurial builders to meet the city’s strong housing demand. We need to go back to flexible rules once again allowing as many new six-story apartment buildings as we can get.

Find space for 12,000 new, actually affordable apartments …

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David Giffen, director of Coalition for the Homeless

Trickle-down housing policies do not work, and so the city should invest in building at least 12,000 new units of deeply subsidized affordable housing per year for five years, with half of those units targeted specifically for homeless households and half for extremely low-income households.

… and use modular construction to help build all of it

Josh Greenman, managing editor of the policy journal Vital City

Minneapolis and other cities are using modular construction to reduce costs and speed up timelines in affordable housing construction. A decade ago, a high-profile New York City experiment in using this technology didn’t succeed. We should try again.

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Revamp zoning laws to focus on housing, not manufacturing

Gregg Pasquarelli, founding principal of SHoP Architects, the firm that designed Barclays Center

We have an abundance of underutilized manufacturing areas that could easily be transformed — without displacing a single resident — into hundreds of thousands of units of affordable housing. We’ll need to be creative about what programs go into the ground floors of these buildings so the new areas evolve as real New York City neighborhoods.

Don’t stop there! Deregulate the housing market

E.J. McMahon, senior fellow at the Empire Center for Public Policy, an Albany think tank

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Don’t just loosen permitting requirements and zoning restrictions to promote more housing construction, consistent with health and fire safety, of course. But also eliminate rent regulations, reform inequities in property tax treatment within and between different classes of residential properties, and reduce property taxes in general.

To make housing more affordable

Make it illegal to charge more than 30 percent of household income for rent

Lauren Melodia, an economist at the New School’s Center for New York City Affairs

That law could also guarantee that new and renewed leases would not be tied to an abstract idea of “market rate” housing, but to each tenant’s actual earnings. That would help end the rat race of people negotiating better wages only to have them swallowed by higher rents, or having to move because the “market rate” in their neighborhood exceeded their wages.

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Fund housing vouchers to shrink the shelter population

Beatriz de la Torre, oversees philanthropy at Trinity Church

New York City spends over $2 billion on homeless shelters. Shifting a significant portion of that funding toward housing vouchers will ensure all New Yorkers have access to long-term, affordable homes.

Eliminate citizenship requirements for those vouchers

The Rev. Chloe Breyer, director of the Interfaith Center of New York

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Do away with the citizenship requirements for housing vouchers so more vulnerable new and longtime New Yorkers can access the apartments they and their families need.

Lower taxes on rental buildings

Carol Kellermann, former president of the Citizens Budget Commission

Revamp the property tax system so that co-op, condo and single-family units’ taxes are more closely related to their real market value — which would make it possible to lower the taxes on rental buildings, where higher taxes are passed along to tenants in their rents. This would mean, for example, that Manhattan townhouses would pay more while large rental apartment buildings in the Bronx would pay less.

Give mom-and-pop landlords more tax breaks

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Elizabeth Morrissey, president of Brooklyn’s Madison-Marine-Homecrest Civic Association

The city gives tax breaks to big developers — what about small landlords? Most small landlords own buildings or homes that were passed down from family and want to continue to provide reasonable housing, but the city keeps squeezing them, so they sell to big developers.

Give homeowners relief from the cost of local laws on climate and repairs

Rod Saunders, board president of Co-Op City in the Bronx

Co-op City has 15,372 apartments in 35 high-rise buildings. Every local law that we have to comply with becomes a financial burden upon our shareholders. For example, complying with Local Law 11, which requires regular facade inspections, cost shareholders $77 million between 2018 to 2024. The incredibly expensive process cycle will begin all over again this year.

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Create an affordable housing program for teachers

Emmanuel Jeanty, eighth-grade public school teacher and real estate agent

New teachers make about $62,000 a year, but to afford an apartment in New York City, you have to show proof of income that is 40 times the rent. And at the same time, veteran teachers are often left out of down payment assistance programs because the income cap is too low.

My wife and I make decent money, but we’re paying for child care for both our kids, plus our apartment in Brooklyn, plus living expenses.

I applied for affordable housing and I got denied because when they looked at our income we made too much, by just a small amount. My wife and I are talking about whether we need to leave New York. We can’t afford it and be able to live comfortably. I want to be able to put my daughter in swimming, gymnastics and dance classes.

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To make it easier to raise a family

Better support thousands of struggling child care workers

Nordica Jones, nanny and mother living in Brooklyn

When my first son finished high school and we were looking at colleges, he turned to me and said: “Mom, I don’t want to go to college because you are already working three jobs. I don’t think we can afford it. I want to work and help you. Maybe my younger brothers can go.”

And now, my youngest is an honor roll student in high school, and I still don’t have a clue on how I will be able to afford it.

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Working with children brings me joy. But I am wishing I didn’t have to work a full three weeks just to pay my rent, and one week to struggle to pay for food and utilities.

Mandate child care in big new buildings

Claire Weisz, a founding partner of the design and architecture firm WXY

All buildings over 20,000 square feet should set aside 2,000 square feet for child care, paid for through a tax on real estate.

Create 24-hour child care centers for essential workers

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Robert Cordero, director of the Lower East Side social service group Grand Street Settlement

At the same time, encourage local businesses to partner with child care providers, offering on-site child care or subsidies for employees. Offer tax incentives or grants to child care providers who offer nontraditional hours or weekend services.

Add a few days to the school year to reduce child care costs

Kenneth Adams, president of LaGuardia Community College in Queens

Lower the cost of child care by extending the New York City Public Schools calendar from 180 days to 190 days, a two-week difference. Families will save on child care and students who fell behind during the pandemic will get help catching up.

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Create a diaper stipend for low-income families

Courtney Crawford, president of the charity Little Essentials, which has distributed 1.4 million diapers since 2011

Fund universal after-school programs …

Grace Bonilla, president of the charity United Way of New York City

As a mother of three sons, I know what it’s like to balance home and work. After-school programs would ease the financial burden on working families and would provide children with further opportunities to develop.

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… and what about after-school activities that help migrants adjust to New York?

Annie Polland, president of the Tenement Museum

When immigrants made up 40 percent of the city’s population at the turn of the 20th century, schools created curriculum aimed at Americanizing immigrant students.

We should draw on this history, and use before- and after-school programs for enrichment for migrant students and their classmates. I’d love for this generation of “Americanization” programs to focus on civics, debate and American history and cultural pluralism, and be available for all students.

Create meal swipes for high school students

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Bridgette Jeonarine, Toluwanimi Oyeleye and Isabella Zapata, editors of The Classic, Townsend Harris High School’s student newspaper

Even though the city offers free breakfast and lunch in schools, students study long after the school day ends, often doing homework and meeting up with friends in local restaurants. Students often have to pick between fast food and expensive options. But subsidized, college-style meal swipe plans and more student discounts offered at restaurants near schools could help make it more affordable to eat healthy.

Consider local alternatives to college

Carmen Salas, instructor and former student at Brooklyn’s Marcy Lab School, which prepares high school graduates for careers in tech

Going to college was the path that I’ve been told to take my whole life. But when I actually got to college, I felt limited. I knew I wanted to be a software engineer, and I wanted to code, but I wasn’t able to do that. Coding boot camps were expensive, but Marcy was free.

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I think about how much time I saved not being in college and being able to step into a job immediately. That was pretty game-changing. It’s put me in a position to be able to save a lot earlier, and to be able to help my family out at a much younger age than I was expecting to.

To put public benefits to work

Increase the minimum food stamp benefit to $100 a month …

Jilly Stephens, chief executive of City Harvest, which works with over 400 local food pantries

Visits to local soup kitchens and food pantries are at a record high. The state must increase the Supplemental Nutrition Assistance Program minimum benefit from $23 per month to $100 per month — similar to what New Jersey has done. As anyone who has bought groceries recently knows, $23 doesn’t go very far at the supermarket.

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… and find new locations for more food pantries

Gordon Turner, a City Harvest recipient and volunteer

I live in public housing on Dyckman Street in Manhattan, and I know people up in Riverdale, in the Bronx, and people on the Upper West Side come up here to get food from the pantries here. Food pantries can be in so many other areas, like more churches, community centers and senior centers.

Fill the many vacant jobs that help New Yorkers access affordability programs

Caitlin Lewis, director of Work for America, which helps local governments recruit talent

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Time is money, and New Yorkers applying for affordability programs are losing a lot of it due to city staffing shortages. The city should take executive action to fast-track hiring for “affordability roles,” like food stamp eligibility specialists, employees that help New Yorkers with Section 8 housing vouchers and benefit caseworkers. These roles generally pay around $50,000 to $65,000, so they also provide stable jobs.

Fund free, universal health care coverage

Vanessa Leung, co-director of the Coalition for Asian American Children and Families

While we work toward a single-payer system, we should create more opportunities for free health screenings, free dental care and free vision care.

Help elderly New Yorkers get benefits they already qualify for …

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Jonathan Bowles, director of the Center for an Urban Future, a think tank

About 18 percent of city residents over 65 are living in poverty, and tens of thousands of those seniors are eligible for benefits but do not take advantage of them — often because they don’t know about them. Those benefits include food stamps, home energy assistance, pharmaceutical insurance coverage and rent increase exemptions. The city should create a marketing and outreach campaign, and should match people’s records to programs for which they are eligible.

… and help families apply for child care benefits

Grace Rauh, director of the 5Boro Institute, a think tank

Families with young children are fleeing the city to escape rising child care costs and the high cost of housing. The city should make it easier for families to apply for child care benefits they are eligible to receive, streamline the process for child care providers to open new businesses, and continue expanding free early childhood programs like 3-K.

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Make it easier for small businesses to get grants

Natalie Ramones, director of operations at Mamita’s Ices in Queens

We supply ices to bodegas across the city, and while we continue to produce our ices here, we find it challenging to scale in our city due to high operating costs. The city provides incentive programs and grants for small business owners, but actually obtaining them is difficult. City officials should streamline the application process, making it easier for business owners to take advantage of them.

To improve the city’s streets, transit and culture

Transform vacant storefronts into legal weed dispensaries

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Sasha Nutgent, director of retail at Housing Works Cannabis Co

Turn vacant storefronts into mini, licensed cannabis dispensaries with affordable rent for small, local and equity-driven operators — and decrease the 13 percent sales tax on legal weed products. Then use that tax revenue to fund other affordability programs across the state.

Pilot one day a month of free subway rides

Selena Blake, owner of Selena’s Gourmet, a Queens dessert company

I would love to see a day in which the subway is just free one day a month. Give us something, because the taxes, the this, the that — it’s like you’re parenting a child and all the kid is hearing is no. At some point, for God’s sake, say yes to him. You can do this, you can just give something back.

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Fund free Metrocards for CUNY students

Salimatou Doumbouya, student at the New York City College of Technology

Free MetroCards for students should be a basic necessity for a commuter college like the City University of New York. Students endure daily financial challenges, which are barriers to fulfilling their degrees.

Get the buses to go faster

Ranae Reynolds, director of the Tri-State Transportation Campaign

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A citywide bus rapid transit network with dedicated lanes and signal priority would cut commute times for low-income New Yorkers, especially those in transit deserts, while lowering emission pollution.

Make it easier for the city’s 65,000 delivery workers to get to you

William Medina, food delivery worker

I’ve had to pay for everything myself, out of my pocket, to do this job. Since 2018, I’ve had six electric vehicles, and have spent around $25,000 on vehicles, gas, supplies, insurance. The apps don’t provide us with anything related to the costs of the vehicles we operate every day. We would love for the companies to pay some of the costs for the people who do this job.

Every time we have to change the wheels, it’s between $600 and $700.

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Then there is the equipment we use for every season, especially winter time. It’s really crazy. You cannot buy a regular jacket; you have to buy a very good quality jacket, that is very expensive here, and warm pants, boots, gloves.

If I don’t collect enough money, I can’t go back home because I have to pay the rent. New York City is expensive, but as a delivery worker, in my honest opinion, it’s about how to survive in this city.

Stop charging so much for cultural sites

David R. Jones, president of the Community Service Society, an anti-poverty group

Let’s dust off the fact that museums, zoos and botanical gardens, when receiving money directly from the city and also not paying taxes, should provide free admission to all city residents as envisioned by Mayor La Guardia when he provided city funding. Now a visit to the Museum of Natural History can cost almost as much as Disneyland, and often the “free” options are limited to a day in the middle of the week, like at the Bronx Zoo.

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No more starving artists: put them to work in city institutions

Stephanie Hill Wilchfort, director of the Museum of the City of New York

Thirteen percent of New York City’s economic output is generated by creative workers, but a majority of artists earn less than the living wage. Reimagining a New York City version of the 1930s-era WPA Federal Art Project, which employed over 10,000 artists at institutions like the Museum of the City of New York, would put money in the pockets of creative workers.

Put on more plays, in more places, more often

Meghan Finn, artistic director of the nonprofit arts center The Tank

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It’s more expensive than ever to see plays, and artists are struggling to make it in New York City. Part of the problem is that most local theaters are only open a fraction of the time, and rent out their space when they are dark. That model broke down during the pandemic. There’s a different way to do this: We provide our space free for artists and then we split box office proceeds with them. We also pop-up in studios and theater lobbies to help theaters make up for lost revenue and put on multiple shows in a single evening.

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Audio Data Shows Newark Outage Problems Persisted Longer Than Officials Said

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Audio Data Shows Newark Outage Problems Persisted Longer Than Officials Said

On April 28, controllers at a Philadelphia facility managing air traffic for Newark Liberty International Airport and smaller regional airports in New Jersey suddenly lost radar and radio contact with planes in one of the busiest airspaces in the country.

On Monday, two weeks after the episode, Sean Duffy, the secretary of transportation, said that the radio returned “almost immediately,” while the radar took up to 90 seconds before it was operational.

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A Times analysis of flight traffic data and air traffic control feed, however, reveals that controllers were struggling with communication issues for several minutes after transmissions first blacked out.

The episode resulted in multiple air traffic controllers requesting trauma leave, triggering severe flight delays at Newark that have continued for more than two weeks.

Several exchanges between pilots and controllers show how the outage played out.

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Outage Begins

Air traffic recordings show that controllers at the Philadelphia facility first lost radio and radar communications for about a minute starting just before 1:27 p.m., after a controller called out to United Flight 1951, inbound from Phoenix.

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The pilot of United 1951 replied to the controller’s call, but there was no answer for over a minute.

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Two other planes reached out during the same period as United 1951 — a Boeing 777 inbound from Austria and headed to Newark, and a plane whose pilot called out to a controller, “Approach, are you there?” Their calls went unanswered as well.

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Radio Resumes, With Unreliable Radar

From 1:27 to 1:28 p.m., radio communications between pilots and controllers resumed. But soon after, a controller was heard telling multiple aircraft about an ongoing radar outage that was preventing controllers from seeing aircraft on their radarscopes.

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One of the planes affected by the radar issues was United Flight 674, a commercial passenger jet headed from Charleston to Newark.

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Once the radio started operating again, some controllers switched from directing flights along their planned paths to instead providing contingency flight instructions.

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At 1:28 p.m., the pilot of Flight N16NF, a high-end private jet, was called by a controller who said, “radar contact lost.” The pilot was then told to contact a different controller on another radio frequency.

About two and a half minutes later, the new controller, whose radar did appear to be functioning, instructed the pilot to steer towards a location that would be clear of other aircraft in case the radio communications dropped again.

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Flight N426CB, a small private jet flying from Florida to New Jersey, was told to call a different radio frequency at Essex County Airport, known as Caldwell Airport, in northern New Jersey for navigational aid. That was in case the controllers in Philadelphia lost radio communications again.

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Minutes Later, Radar Issues Persist

According to the Federal Aviation Administration, aircraft reappeared on radarscopes within 90 seconds of the outage’s start, but analysis of air traffic control recordings suggest that the radar remained unreliable for at least some radio frequencies for several minutes after the outage began around 1:27 p.m.

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At 1:32 p.m., six minutes after the radio went quiet, Flight N824TP, a small private plane, contacted the controller to request clearance to enter “Class B” airspace — the type around the busiest airports in the country. The request was denied, and the pilot was asked to contact a different radio frequency.

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1:32:43 PM

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Pilot

Do I have Bravo clearance?

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1:32:48 PM

Controller

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You do not have a Bravo clearance. We lost our radar, and it’s not working correctly. …

If you want a Bravo clearance, you can just call the tower when you get closer.

1:32:59 PM

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Pilot

I’ll wait for that frequency from you, OK?

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1:33:03 PM

Controller

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Look up the tower frequencies, and we don’t have a radar, so I don’t know where you are.

The last flight to land at Newark was at 1:44 p.m., but about half an hour after the outage began, a controller was still reporting communication problems.

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“You’ll have to do that on your own navigation. Our radar and radios are unreliable at the moment,” a Philadelphia controller said to a small aircraft flying from Long Island around 1:54 p.m.

Since April 28, there has been an additional radar outage on May 9, which the F.A.A. also characterized as lasting about 90 seconds. Secretary Duffy has proposed a plan to modernize equipment in the coming months, but the shortage of trained staff members is likely to persist into next year.

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Two Men’s Fight to Protect the Geese at the Central Park Reservoir

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Two Men’s Fight to Protect the Geese at the Central Park Reservoir

Whether goslings live or die at the Central Park Reservoir could be up to two 70-something, nature-loving men who first crossed paths there this winter.

Edward Dorson, a wildlife photographer and regular visitor to the reservoir, learned in 2021 that federal workers were destroying the eggs of Canada geese there as part of a government safety program to decrease bird collisions with airplanes. He tried to stop it.

He reached out to animal rights organizations and wrote letters to various government agencies. He got nowhere.

Then in December, he met Larry Schnapf, a tough-talking environmental lawyer, who spotted Mr. Dorson admiring the birds and introduced himself. Mr. Dorson told him about the nest destruction. Mr. Schnapf, in his 40-year legal career, had mostly focused on redeveloping contaminated properties but had picked up the occasional pro bono passion project. “I told him I take on quixotic pursuits,” Mr. Schnapf said.

Now, they are teaming up to protect the eggs of a small population of Canada geese that nest around the reservoir, a popular attraction for joggers and bird watchers. The battle will undoubtedly be uphill: They are lobbying multiple government agencies during a fraught time in aviation where bird strikes are one of many concerns, on behalf of a bird often described as a nuisance because of its honking cries and the droppings it leaves on lawns, parks and golf courses.

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The men say they appreciate the importance of protecting planes. But they are seeking to exempt the Central Park Reservoir from the egg destruction program so that it can serve as a sanctuary for the nesting geese. They argue that Central Park is far enough from the area’s airports that the geese do not pose a major problem.

Mr. Schnapf said he plans to send a cease-and-desist letter to the Port Authority of New York and New Jersey, which oversees five major airports in the region, including Kennedy International Airport, Newark Liberty International Airport and LaGuardia Airport. The agency works with an arm of the U.S. Department of Agriculture on the safety program. “I think this is all unlawful,” he said. “These are protected animals.”

Port Authority officials did not comment on the advocacy plans of the two men. But they stressed that government efforts like those underway in Central Park were part of creating safer conditions for air travel.

“Managing wildlife risks — especially from resident Canada geese — near our airports is a life safety imperative and essential to maintaining safe operations,” said Laura Francoeur, the Port Authority’s chief wildlife biologist.

Although Canada geese are protected under the Migratory Bird Treaty Act, authorities have obtained a waiver to control the population. The birds, which can weigh as much as 19 pounds and have a wingspan up to 5.5 feet, according to the Cornell Lab of Ornithology, can get sucked into plane engines and bring an aircraft down.

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Between 2008 and 2023, there were 451 aviation accidents involving commercial aircraft in the United States, with a total of 17 caused by bird strikes, producing five injuries and no fatalities, according to the National Transportation Safety Board.

New York City tightened its grip on Canada geese in 2009, after a collision with a flock caused US Airways Flight 1549, piloted by Chesley B. Sullenberger III, to lose both its engines shortly after it took off from LaGuardia. The plane was forced into an emergency water landing in what is now commonly known as the “miracle on the Hudson.”

The event prompted the Port Authority to ask the Department of Agriculture for help. In 2010, federal wildlife workers took on the management of Canada geese populations within seven miles of the city’s major airports, including in city parks.

Mr. Schnapf calls the current rules an overreach, since Federal Aviation Administration guidelines call for wildlife management only within five miles of airports. A Port Authority spokeswoman said the agency honors all federal regulations, including addressing wildlife hazards within five miles of airports. But she added that the agency will often go beyond that radius when specific threats arise.

Data from the F.A.A. shows that Canada geese strikes at LaGuardia and Kennedy Airports have remained consistent over the last two decades, with between zero and four instances per year.

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Canada geese thrive in people-friendly landscapes, and their population has boomed throughout North America over the last four decades. Many geese have become so comfortable in parks and other green spaces, like the reservoir, that they have stopped migrating, becoming year-round residents.

There are about 228,000 resident Canada geese in New York State, up from 150,000 in 2002. The state’s Department of Environmental Conservation would like to see that number shrink to 85,000.

The two men fighting for the Central Park Reservoir’s resident geese were both born in the Bronx, are similar in age and diet (one is a vegetarian, the other a vegan). But the similarities more or less end there.

Mr. Dorson, 77, an accomplished underwater photographer and conservationist with a background in the arts, is a soft-spoken lover of hard-to-love animals — he helped start a shark sanctuary in Palau, in Micronesia. Mr. Schnapf, 72, is a fast-talking, fast-acting networker who is not afraid to make noise.

“I told Ed,” he said, “you’ve got to rattle the bureaucracy.”

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Mr. Dorson and Mr. Schnapf are hoping to meet with officials from the Port Authority, the Central Park Conservancy and the city’s Department of Environmental Protection, which oversees the reservoir, among other decision makers.

”All we’re trying to do is get them to talk to us, so we can come up with a plan so at least some of those eggs can be hatched,” Mr. Schnapf said.

Mr. Dorson admitted that, right now, “I don’t see too many people like me who are worried about the geese.”

“But maybe 10 years from now, when there are no geese here, then people might feel the loss,” he said. “I’d like to change that.”

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Outside Official Will Take Over Deadly Rikers Island Jail, Judge Orders

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Outside Official Will Take Over Deadly Rikers Island Jail, Judge Orders

A federal judge overseeing New York City’s jails took Rikers Island out of the city’s control on Tuesday, ordering that an outside official be appointed to make major decisions regarding the troubled and violent jail complex.

The judge, Laura Taylor Swain, said in a 77-page ruling that the official would report directly to her and would not be a city employee, turning aside Mayor Eric Adams’s efforts to maintain control of the lockups. The official, called a remediation manager, would work with the New York City correction commissioner, but be “empowered to take all actions necessary” to turn around the city’s jails, she wrote.

“While the necessary changes will take some time, the court expects to see continual progress toward these goals,” Judge Swain wrote.

The order comes nearly a decade after the city’s jails, which include the Rikers Island complex, fell under federal oversight in the settlement of a class-action lawsuit. The agreement focused on curbing the use of force and violence toward both detainees and correction officers. A court-appointed monitor issued regular reports on the persistent mayhem.

New York City has held onto its control of Rikers with white knuckles — struggling to show progress and reaching the brink of losing oversight of the jails as critics of the system have called for a receiver. Conditions have not improved, according to lawyers for the plaintiffs and the federal monitor.

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The city’s jail population has grown to more than 7,000 from a low of about 4,000 in 2020. And in the first three months of this year, five people died at Rikers or shortly after being released from city custody, equaling the number of detainees who died in all of 2024.

In a statement, lawyers from the Legal Aid Society and Emery Celli Brinckerhoff Abady Ward & Maazel, which represent detainees, said they commended the court’s “historic decision.”

“For years, the New York City Department of Correction has failed to follow federal court orders to enact meaningful reforms, allowing violence, disorder and systemic dysfunction to persist,” said Mary Lynne Werlwas and Debra Greenberger. “This appointment marks a critical turning point.”

The remediation manager will be a receiver in all but name. The official will be granted “broad powers” as plaintiffs had asked, Judge Swain wrote, but will also develop a plan for improvement in concert with the correction commissioner.

Such arrangements are the last resort for a troubled jail or prison. Since 1974, federal courts have put only nine jail systems in receivership, not counting Tuesday’s Rikers order.

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The ruling was another blow for Mr. Adams, who is fighting for his political life after the Trump administration dropped corruption charges against him so that he could assist with its deportation efforts. Many of his confidants have also faced investigations, he is on his fourth police commissioner and his approval ratings have hit historic lows.

Now, the mayor, a former police captain, has lost most control of an institution that employs about 5,000 people represented by the Correction Officers’ Benevolent Association, a union that has been a bastion of political support.

On Tuesday, even as prisoners rights organizations and some of Mr. Adams’s campaign opponents celebrated, the mayor disputed whether Judge Swain’s order constituted a receivership and painted it as a benefit.

“The problems at Rikers are decades in the making,” he said. “We finally got stability.”

In a statement, Benny Boscio, president of the correction officers’ union, said that Judge Swain’s order had preserved the right to representation and collective bargaining, and he made clear that the guards must be reckoned with.

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“The city’s jails cannot operate without us,” he said. “And no matter what the new management of our jails looks like, the path toward a safer jail system begins with supporting the essential men and women who help run the jails every day.”

New York City has spent more than $500,000 per inmate annually in recent years, according to city data, well beyond what other large cities have spent, and yet detainees still sometimes go without food or proper medical care.

A New York Times investigation in 2021 found that guards are often stationed in inefficient ways that fail to protect detainees. And although the jail system has consistently been the most well-staffed in the United States — there is roughly one uniformed officer for each inmate at Rikers, according to city data — an unlimited sick leave policy and other uses of leave have meant that there are too few guards present to keep inmates safe.

The class-action lawsuit that led to the takeover, known as Nunez v. City of New York, was settled in June 2015 and required that the jails be overseen by a court-appointed monitor who would issue regular reports on conditions there but would wield no direct power to effect change.

Through those reports, Judge Swain was given an extensive history of the cyclical nature of the jail system’s problems. Through the administration of two mayors and several correction commissioners, the jails continued to devolve, according to prisoners’ rights advocates and the monitor’s reports. In November, the judge found the city in contempt for failing to stem violence and excessive force at the facility, which is currently run by Correction Commissioner Lynelle Maginley-Liddie.

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Over the years, the city has argued that the Department of Correction has made progress, even as Judge Swain issued remedial orders and the monitor and prisoners’ advocates pointed to backsliding.

In 2023, Damian Williams, then Manhattan’s top prosecutor, joined calls for the appointment of an outside authority to take control of Rikers, saying that the city had been “unable or unwilling” to make reforms under two mayors and four correction commissioners.

On Tuesday, Jay Clayton, whom President Trump appointed last month as interim U.S. attorney, said Judge Swain’s decision was a “welcomed and much needed milestone.”

In a 65-page opinion last year, Judge Swain said that the city and the Department of Correction had violated the constitutional rights of prisoners and staff members by exposing them to danger, and had intentionally ignored her orders for years. Officials had fallen into an “unfortunate cycle” in which initiatives were abandoned and then restarted under new administrations, she wrote.

An inability to operate independently of politics is what has kept Rikers from turning around, said Elizabeth Glazer, the founder of Vital City and a former criminal justice adviser under Mayor Bill de Blasio.

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“Every new administration, there’s a reset,” she said. “Every new crisis, there’s a reset.”

Last year, Judge Swain ordered city leaders to meet with lawyers for prisoners to create a plan for an “outside person,” known as a receiver, who could run the system.

The parties met in recent months to try to reach an agreement, in deliberations overseen by the federal monitor, Steve J. Martin. He told the court that the parties and his team had been “actively engaged” in discussions.

In the end, the sides submitted dueling proposals.

The Legal Aid Society and a private law firm representing incarcerated people argued that the court should strip the city of control and install a receiver who would answer only to the court. The receiver should be given broad power to make changes, they proposed, including with regard to staffing and union contracts that govern it.

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The receiver, they said, could “review, investigate and take disciplinary or other corrective or remedial actions with respect to violations of D.O.C. policies, procedures and protocols” related to the court order.

In its plan, the city offered to give Ms. Maginley-Liddie dual roles by adding the title of “compliance director” to her responsibilities. The city proposed that she answer to the court on issues related to the consent decree, such as safety and staffing shortages, while answering to the mayor on everything else.

However, the city has had a “a multitude of opportunities” to improve its management of the jails and has “proven unable or unwilling to take advantage of those opportunities,” said Hernandez D. Stroud, a senior fellow at the Brennan Center for Justice at the New York University School of Law.

“Judge Swain was left no other choice,” he said.

Emma G. Fitzsimmons contributed reporting.

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