[General] I have been here twice.

[rodgers white]

Yup. And I'd say it if I were in New York now.

- Welcome to New York! Is this your first trip here? (NOT in.)

- No, I've been to New York lots of times. (To and in both work there, though I agree that to is more likely.) In fact, I used to live in the city. (NOT to.)

(Note: Like San Francisco, New York is often just called "the city.")

That's why we say: Context is always important.

 

[Matthew Wai]

This non-native would add 'here' and 'before' when I am and am not respectively in New York if 'in' is used.
1. I have been here in New York lots of times.
2. I have been in New York lots of times before.

 

[GoesStation]

This non-native would add 'here' and 'before' when I am and am not respectively in New York if 'in' is used.
1. I have been here in New York lot of times.
2. I have been in New York lot of times before.

With an indefinite article before "lot", both sentences will be correct, but "here" and "before" are not required.