Nice cherry picked data. That's a HUD report. Try checking the NYC Rent Guidelines Report for accurate data:
Manhattan 2.57 and Queens 2.11 [1]
That's from page 2. It also shows a -25% and -35% change for vacancy rates from 3 years prior for those two boroughs.
And you can't seem to produce any citation for your assertion about a piece of the tax code that allows landlords to make more money from empty apartments than renting them at market rate.
Also, this data does not agree with you. Lowest vacancy rate of any borough was 2.3% in Queens in 2000 and between 3.1 and 4.2 in every other borough.
The economy is doing even better in NYC right now and the vacancy rate is over 11% right now. https://www.6sqft.com/nearly-250000-nyc-rental-apartments-si... Hrmmm....