The development and administration of the zoning ordinance is based on the division of the City into districts, within any one (1) of which the use of lands and buildings and the bulk and location of buildings or structures, as related to land, are essentially uniform. It is recognized, however, that there are special uses which, because of their unique character, cannot be properly classified in any particular district or districts without consideration in each case of the impact of those uses upon neighboring lands and the public need of the particular use in the particular location.