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It seems like a logical thing to do. A few articles on why it is difficult. https://www.nbcnews.com/business/real-estate/why-empty-offices-aren-t-being-turned-

• JumpCrisscross 4y ago
  > why it is difficult The argument in the Washingtonian hints at a policy solution. It cites a "lack windows on at least two sides" with cavernous floors making "direct natural light" rare. The "complexity of adding hundreds of bathrooms and kitchens (not to mention the accompanying venting and plumbing)" is real. "Turning rooftops into amenity spaces" is not. So yes, these aren't going to become luxury apartments. Will they have less direct sunlight and no rooftop garden? Yes. Are those remotely necessary? Of course not. Fewer windows doesn't mean no windows; this isn't a safety issue. We will probably need code amendments. But that would require political will to legalize affordable housing.