PROMOTING MIXED-USE

DEVELOPMENT Palm Beach County Policy 2.2.2-a:

“In order to discourage strip commercial
development, to limit commercial
Context
development to nodes, to foster
The Hillsborough County City-County Planning interconnectivity, and to promote the
development of innovated mixed use projects
Commission is preparing updates to the inside the Urban Service Area, all new
comprehensive plans for Tampa, Temple Terrace, commercial future land use designations shall
Plant City, and unincorporated Hillsborough meet one of the following location
County. requirements . . .”

Sarasota County Housing Policy 1.1.3:

In March 2014, the Planning Commission engaged “Facilitate the production of mixed-use
Dover, Kohl & Partners and Spikowski Planning development, comprised of residential-
Associates to suggest improved policies encouraging commercial-professional uses, through the
mixed-use development. A second task is to identify application of appropriate development
standards, design flexibility and compatibility
approaches that could improve the way these plans review, and regulatory and financial
attempt to avoid strip commercial development, incentives.”
which is being addressed in tandem.
This Document
Mixed-Use Development This document summarizes the results of the first
Until the 1950s, mixed-use development didn’t have task in the mixed-use assignment.
a name because most development didn’t segregate
large expanses of land into pods restricted to a The consulting team identified a wide variety of
single use. It wasn’t unusual for block upon block to methods used in comprehensive plans from other
be dedicated to one use, but proximity and easy communities to encourage mixed use development.
access to complementary uses was taken for Brief case studies are presented in the following
granted. pages for the following jurisdictions:
 Sarasota County (new villages outside the
urban service boundary)
Suburban planning is all about  Southeast Lee County (new mixed-use
separation and segregation of uses. communities on greenfield sites)
Buffers, enormous setbacks,
masking. And the high speeds  El Paso TX (variety of techniques)
necessitated by such design.  Miami-Dade County (designated “Urban
Urban planning, by stark contrast,
strives for mixed and shared use, Centers”)
permeability, modest speeds,  Gainesville (variety of techniques)
and compact dimensions.
 Austin TX (mapped growth areas coupled
--- Dom Nozzi
with incentives)
 Orange County, FL (mixed-use corridors
and activity centers)

Florida’s comprehensive planning program is After the case studies, this document summarizes
generally supportive of mixed-use development. best practices suggested by others:
State planning statutes repeatedly encourage
mixed use development (F.S. Chapter 163, Part II).  Oregon’s Commercial and Mixed-Use
Yet without noting the irony, these same statutes Development – Code Handbook
require local governments to designate residential  ULI’s Mixed-Use Development Handbook
and commercial zones separately on their future
land use maps. (F.S. 163.3177(6)(a)(10)a). This document closes with a list of potential policy
approaches that may be applicable for local
governments in Hillsborough County.

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CASE STUDIES
SARASOTA COUNTY, FLORIDA
Sarasota County’s comprehensive
Broad Village/Open Space principles were placed in
plan received a major refinement
the comprehensive plan. A new zoning district was
in 2002 when a new section was
created to provide detailed standards plus the
added, commonly known as
processes for submitting detailed site plans that
Sarasota 2050.
meet the principles and design standards.
Much of Sarasota 2050 dealt with
The comprehensive plan requires that each village
an optional incentive-based
include “a range of housing types that support a
process that would allow major landowners east of
broad range of family sizes and incomes.” To
Interstate 75 to consolidate their development
implement this policy, the land development
rights and build compact villages or hamlets while
regulations identify 9 housing types and require
permanently preserving open spaces.
that 6 of those types be provided in each village,
and 5 types in each neighborhood in the village.
The map shown on the next page designated land
(in the lightest color) as “Village / Open Space
The “adequate mix of non-residential uses” is to be
RMAs” (Resource Management Areas). These are
provided in mixed-use village centers designed to
large agricultural or natural tracts that had been
serve the daily and weekly needs of village
precluded from development because they were
residents. The comprehensive plan requires these
outside the urban service boundary as established
minimum and maximum percentages:
in the county’s comprehensive plan.

The RMA designations did not change the MINIMUM MAXIMUM

LAND USE MIX AREA AREA
underlying Future Land Use Map; the designations
identified areas where land owners could choose to Residential 25% 50%
use the new policies in place of the pre-existing Commercial/Office 30% 60%
rules.
Public/Civic 10% n/a
Two of the main principles that apply to new Public Parks 5% n/a
villages outside the urban service boundary address
how land uses are mixed (or not):
 Open Space: An inter-connected The comprehensive plan states the villages are
system of open spaces would conserve collections of neighborhoods where a majority of
natural habitats and preserve homes are within walking distance or ¼-mile radius
agricultural lands. of a neighborhood center.
 New Urbanism: Development must
be in villages or hamlets that are
compact, walkable, and
interconnected, with a variety of
housing types and mix of other uses.

Policy VOS2.5 includes this requirement about

mixing of uses:
 “That the integrity of the mixed-use
district is not compromised by
allowing extensive single-uses. The
land use mix shall be phased to
provide an adequate mix of non-
residential uses to serve residential
development within each development
phase or sub-phase.”

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 Policy Update for t
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The village portion of Sarasota 2050 has been  Some of the percentages of the required mix
controversial from its inception. In 2014 it is of non-residential uses in village centers are
undergoing major revisions to loosen some being changed to allow developers more
requirements that the development community latitude. The new percentages would be as
believes have inhibited the successful creation of follows:
villages. Some of the requirements being loosened
are described here: MINIMUM MAXIMUM
LAND USE MIX AREA AREA
 The land development regulations are being
changed to require 4 housing types in each Residential 15% 65%
village (down from 6); 3 types in each Commercial/Office 25% 75%
neighborhood (down from 5); and no more Public/Civic 5% n/a
than 75% of the homes in each
Public Parks 5% n/a
neighborhood being a single type (down
from 60%).
The site plan below shows the Grand Palm
community under development near Venice. This
community is the first being built under the
existing Sarasota 2050 rules.

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LEE COUNTY, FLORIDA
Lee County’s comprehensive plan
received a major refinement in 2010
when a new plan was adopted for the
undeveloped quadrant of the county
south of Lehigh Acres and east of I-75.

Like Sarasota 2050, this plan provides an optional

incentive-based process that would allow major
landowners to consolidate their development rights and
build compact mixed-use communities while permanently
preserving open spaces.

An overlay on the future land use map, shown on the next

page, designates five potential mixed-use communities
along the northern and western edges of Lee County’s
southeast quadrant.

This plan does not set fixed percentages of uses that each
mixed-use community must meet when site plans are
prepared and reviewed. County commissioners wanted to
incentivize mixed-use development by removing potential
obstacles to approval.

In place of numerical criteria, the land development code

includes a conceptual regulating plan for each mixed-use
community that includes multiple transect zones and a
walkable block network (see upper right plan). Developers
choosing to use or modify this regulating plan do not need
to rezone their land; they submit a detailed regulating
plan like the one shown on the lower right, which can be
approved administratively. Developers may choose
rezoning if they want to deviate considerably.

Each conceptual regulating plan includes several different

transect zones and a variety of walkable street types
chosen from a pre-approved palette of types. Without
rezoning, developers may alter the transect zone
assignments provided the diversity of transect zones is not
eliminated; and they may modify block sizes and shapes
provided the blocks continue to meet the code’s standards.

This system was developed to avoid artificial percentages

of different uses, while still ending up with a mix of uses in
each community and precluding a monoculture of any
single housing type. Under this system, portions of each
community can be developed by different parties instead of
by a single developer, with the regulating plan ensuring
that the overall diversity and walkability will be
maintained.

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 Policy Update for t
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EL PASO, TEXAS
The City of El Paso, Texas, adopted Plan El Paso in
2012, an entirely new comprehensive plan for this
border city of 650,000 residents. Many aspects of
this plan strongly support mixed-use development
and redevelopment. Several examples are provided
on the following pages.

Future Land Use Map

An entirely new future land
use map was created for Plan
El Paso.

One distinguishing feature was

the elimination of most of the
prior zoning-type designations
that had specified a single use
of land (residential,
commercial, etc.).

In their place, this map

identified a series of ‘open-
space sectors’ for land that
would not be developed over
the life of the plan, and another
series of ‘growth sectors’ that
varied by the character and
intensity of existing and
proposed land uses.

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Design Guidance
Plan El Paso contained specific ‘design guidance’ for
the most common growth sectors. Summaries are
shown below for the “Traditional Neighborhood”
growth sector, which applies to areas developed
prior to World War II, and the “Suburban” growth
sector, which applies to modern single-use
residential subdivisions and shopping centers.

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Community Design Manual Urban Design Element
A heavily illustrated community design manual Plan El Paso’s urban design element combines
was included as an appendix to this plan. This goals and objectives with illustrative plans for a
manual explained and illustrated five basic dozen places with specific problems or opportunities
components of great neighborhoods: for growth and redevelopment, such as a potential
 Identifiable center and edge for each transit-oriented development site and commercial
neighborhood strips that could evolve into much more.
 Walkable size
 Mix of land uses and housing types, with
opportunities for shopping and workplaces
close to home
 Integrated network of walkable streets
 Special sites reserved for civic purposes

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Thoroughfare Plan
To match the design of new and retrofitted streets
with the character of development, El Paso’s new
Thoroughfare Plan was based on the Plan El Paso’s
future land use map. The growth and open-space
sectors were grouped to identify areas where streets
should have urban character (slower speeds,
curbs, on-street parking), suburban character
(faster speeds, bike lanes, turn lanes), or rural
character (swales, trails). The Thoroughfare Plan
created cross-sections for each character type.

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MIAMI-DADE COUNTY, FLORIDA
In the early 1990s, many Specific language in the Plan encourages shared
communities in Miami-Dade parking, prohibits blank walls, and notes that
County were experiencing rapid buildings should be built to the sidewalk edge in
development, and conventional these areas. A diversified mix of uses is prescribed
suburban zoning standards were in in all Urban Centers including: retail, business,
place throughout the region. In an professional services, hotels, restaurants,
effort to allow higher density and to recreation, entertainment, public space, and
accommodate development with a mix of land uses, moderate-to-high density residential uses.
the county altered the Land Use Element of the
Comprehensive Development Master Plan to “The locations of urban centers and the mix and
designate “Activity Centers”, which has been configuration of land uses within them are
refined in the current plan as “Urban Centers.” designed to encourage convenient alternatives to
travel by automobile, to provide more efficient
“Urban Centers” are defined as “…moderate- to land use than recent suburban development
high-intensity design-unified areas which will forms, and to create identifiable "town centers"
contain a concentration of different urban functions for Miami-Dade's diverse communities. These
integrated both horizontally and vertically.” There centers shall be designed to create an identity
are three types of Urban Centers, which range in and a distinctive sense of place through unity of
scale (from large to small): Regional Activity design and distinctively urban architectural
Centers, Metropolitan Urban Centers, and character of new developments within them.”
Community Urban Centers. Each type has a
minimum FAR and a maximum density. The land
within each Urban Center is characterized by being
located in the core, the center, or along the edge.

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To view full-size map, visit:
http://www.miamidade.gov/planning/library/maps/A
dopted-2020-and-2030-Land-Use-Plan-Map.pdf

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To stimulate mixed use, the County requires an
average FAR and density for each Urban Center:
 In Regional Activity Centers, the average
FAR is required to be greater than 4.0 in
the core and not less than 2.0 in the edge,
with a maximum density of 500 dwelling
units per gross acre.
 In Metropolitan Urban Centers, the average
FAR must be greater than 3.0 in the core
and not less than 0.75 in the edge, with a
maximum density of 250 dwelling units per
gross area.
 In Community Urban Centers, the average
FAR must be greater than 1.5 in the core
and not less than 0.5 in the edge, with a
maximum density of 125 units per gross
acre.

The Land Use Element designates Downtown

Kendall as the “Dadeland Regional Activity
Center.” Requiring a minimum density and
allowing a higher density has resulted in mixed-use
development in downtown Kendall — a location
previously in the form of a strip commercial
corridor with vast amounts of surface parking. In
the new development, big box stores that are
typically part of sprawling, single-use buildings are
located on the ground floors, with residences
located above. Restaurants and hotel chains have
also successfully adapted to this building format.
Additionally, the combination of shared parking
spaces and parking garages creates a built
environment that is urban in character.

It is important to note that in Downtown Kendall a

form-based code was created to codify the
comprehensive plan’s requirements. Three
Regulating Plans (the Street Frontage Plan, the
Designated Open Space Plan, and the Sub-District
Plan) are used to guide new development. However,
it was the initial policy mechanism in the
comprehensive plan that first defined Activity
Centers and required a minimum and maximum
density for this area. For details of the
requirements of the CMDP and form-based code,
see the Miami-Dade County strip commercial case
study.

The combination of the comprehensive plan vision

and requirements and the subsequent
implementation of the area-specific form-based code
are transforming this area into a walkable urban
center.

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GAINESVILLE, FLORIDA
The Future Land Use Element adjacent to the University of Florida facilities.) The
of the Comprehensive Plan for description notes that an “essential component of
the Gainesville outlines a the district is orientation of structures to the street
series of policies that promote and multi-modal character of the area.” A
(and in some cases require) a maximum allowable density in specified for the
mix of land uses in an effort to Mixed-Use zones; a minimum and a maximum
create walkable and density is specified in the Urban Mixed-Use zones.
sustainable communities.
The City also designates a series of Planned Use
“To the extent possible, all planning shall be Districts (see map) based on location and future
in the form of complete and integrated use. While the requirements of each are slightly
communities containing housing, shops, varied, the language requires mixed-use
workplaces, schools, parks and civic facilities development patterns. For example, The Orton
essential to the daily life of the residents.” Trust Planned Use District is required to include a
mix of residential and non-residential uses while
The development goals outlined by the City also complying with the following requirements:
describe the need to establish standards that allow
conventional shopping centers to be retrofitted or  A minimum of 40,000 square feet of
redeveloped into mixed use centers: residential use shall be required above the
first or second story of non-residential uses,
“Adopt land development regulations that guide and may be placed above the first or second
the transformation of conventional shopping story of any part of the 80,000 square feet of
centers into walkable, mixed use neighborhood non-residential use authorized.
(activity) centers.”  The maximum allowable square footage for
any one-story retail/ commercial building
To implement the vision for mixed use, the City where the entire building is in a single use
identifies land use categories that prescribe a range is 15,000 square feet.
of density requirements for a series of character  A maximum of 2 businesses shall be
areas. Mixed-use categories include: allowed to have drive-through facilities.
 Mixed-Use Residential: up to 75 units per acre
 The planned development zoning ordinance
 Mixed-Use Low-Intensity: 8-30 units per acre shall prescribe a phasing schedule in order
 Mixed-Use Medium-Intensity: 12-30 units per to ensure a mixed use project including
acre residential and/or residential infrastructure
 Mixed-Use High-Intensity: up to 150 units per from the first phase of construction.
acre  The internal road network shall be designed
 Urban Mixed-Use 1 (UMU-1): 8 -75 units per using Traditional Neighborhood
acre; and up to 25 additional units per acre by Development Street Design Guidelines as
special use permit published by the Institute of Transportation
 Urban Mixed-Use 2 (UMU-2): 10 to 100 units per Engineers, as updated from time to time.
acre; and up to 25 additional units per acre by
special use permit. The Urban Village District includes many of the
same requirements, but also prohibits
Within the Mixed-Use categories, the plan specifies development that conflicts with mixed-use
that development conform to the Traditional communities. Neither single-story, large scale
Neighborhood Development (TND) ordinance—an retail (defined as a single retail use with a
ordinance that encourages compact, walkable ground floor footprint exceeding 100,000 square
communities. feet), nor development where surface parking is
the principal use are allowed in the Urban
The Urban Mixed-Use categories describe the need Village. In essence, the City has designated
to be connected as being related to conducting areas where sprawling commercial strips
collaborative research. (These zones are located cannot be developed.

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To view full-size map, visit:
http://www.cityofgainesville.org/Portals/0/plan/cg_L
U_Map_11X17.pdf

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The Plan maps and describes another interesting overlay area are discussed in a related document,
overlay, called the “Innovation Zone.” The character the Innovation Square Development Framework.
and intended development within the zone will be
urban and walkable. Given the proximity of the While the exact method of requiring a mix of land
zone to both downtown and the University of uses varies slightly in each mapped District, the
Florida, it is deemed essential that the street intent to include a minimum amount of residential
network be tightly interconnected to encourage development along with compact commercial
collaborative research. Specific requirements for the development remains intact. The City is also

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Page 16 of 27 Mixed-Use Development
careful to note that effective design is necessary in  Building facades facing the street and
order to accommodate for higher density. aligned to form squares,
 A vertical mix of residences above non-
“Design standards in the Land Development residential uses within the center, and a
Code…ensure that higher densities are livable.” required percentage of Center floor area
that is residential and retail.
“Redevelopment should be encouraged to
 No free-standing retail establishment
promote compact, vibrant urbanism, improve
within the center exceeding 30,000 square
the condition of blighted areas, discourage
feet (or some set maximum) of first floor
urban sprawl, and foster compact development
area.
patterns that promote transportation choice.”
 First floor uses promoting entertainment
In addition to the Future Land Use Element, and retail uses, and articulation and
Gainesville’s comprehensive plan also provides an glazing for pedestrian interest.
illustrated Urban Design Element that offers  Rules that restrict establishment of auto-
specific design standards for centers of mixed-use oriented uses, or uses that generate
development. The Urban Design Element describes significant noise, odor, or dust.
in-depth methods for achieving “connected” streets
and public spaces that can easily be utilized by
pedestrians, cyclists, and transit users. The
guidance is simply depicted and is prescribed to be
applied to “select locations within the City.”

“Objective 1.2: Promote urban livability and

aesthetics, including the safety, comfort, and
convenience of pedestrians, bicyclists and transit
users, while still providing for the needs of car
drivers.”

“Gridded, interconnected street networks with a

generally north south, east-west orientation are
encouraged. Streets should be connected with
other streets to the maximum extent feasible.”
“Blocks are encouraged to be generally
rectangular in shape. Block length and
perimeter are encouraged to be modest.”

These guidelines are intended to encourage the

design of neighborhood centers and town centers
that are walkable and mixed use in character, with
the following requirements:
 Commercial build-to lines that pull the
building up to a wide sidewalk with a row of
trees.
 Modest instead of abundant off-street
parking, located at the rear or side of
buildings, and away from pedestrian areas.
 A sense of arrival and departure.
 A connected sidewalk and path system
promoting safety, comfort and convenience
by linking buildings within the Center and
to adjacent properties.

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AUSTIN, TEXAS
In Imagine Austin, the comprehensive plan for
The goals and strategies outlined in the
Austin, Texas, the initial policy objectives describe
comprehensive plan for the City of Austin have
a future for the City that promotes mobility,
been complemented by an incentive-based approach
livability, and sustainability while also adapting to
to achieving mixed use within the designated
rapid growth. A mix of uses—including residential,
centers. The City has utilized the “Smart Growth
commercial, entertainment, office, and civic
Criteria Matrix” as a tool for prioritizing desired
activities—are central to the development of the
development and providing incentives to those
neighborhoods and communities outlined in the
proposing new projects.
Plan.
With the principles of Smart Growth as its
The method for defining future growth in Imagine foundation (including, walkable, mixed use
Austin is depicted in the “Growth Concept Map.” neighborhoods), the Smart Growth Criteria Matrix
(see page 15) Essentially, the City has mapped a is essentially a “scorecard” for proposed
sequence of activity centers and corridors where a developments. Goals from the comprehensive plan,
mix of all uses is desired. These centers range in such as building location, density, amount of mixed
scale—from largest to smallest—and are called use, transit coordination and parking, are weighted
Regional Centers, Town Centers and Neighborhood and ranked in a scorecard format. The resulting
Centers. By definition, these centers are required to score fits within a series of categories. Each
develop as mixed use nodes within the City. “These category acts as an individual incentive to the
centers and corridors allow people to reside, work, applicant. After tallying a total score for all
shop, access services, people watch, recreate, and categories, the higher the score the better the
hang out without traveling far distances.” incentive for the proposed development. Examples
of incentives include: waiver or reduction of process
Imagine Austin contains parameters for regional,
fees for the applicant, a reduction in taxes, or a
town and neighborhood centers that prescribe a
general streamlining of the approval process. In
minimum and a maximum for the residential
Austin, the Transportation, Planning and Design
population and the number of jobs. Regional
Department initiated this process and works with
Centers are the largest of their type and are
other members of City government to implement
intended to be the most urban of the mixed-use
the incentives. The Matrix is a helpful way for the
centers. They are also intended to have the highest
City to understand how proposed projects will
density. “Regional centers will range in size between
measure up to the goals listed in the comprehensive
approximately 25,000-45,000 people and 5,000-
plan. At the same time, this method provides
25,000 jobs.” Town Centers are intended to be less
incentives and opportunities to developers and
intense than Regional Centers, but still large
other applicants as they plan for future projects.
enough to accommodate a mix of housing types and
a range of employers. “Town centers will range in
The Austin comprehensive plan clearly
size between approximately 10,000-30,000 people
communicates that implementation of mixed use
and 5,000-20,000 jobs.” Neighborhood Centers are
communities at the regional, town, and
places that are walkable, bikable and located near
neighborhood scale are of primary importance. This
transit—but they are the least intense of the three
is also clear in the Matrix. This tool allows the City
centers. “Neighborhood centers range in size
to measure the amount of mixed use in each
between approximately 5,000-10,000 people and
proposal, which then results in an appropriate
2,500-7,000 jobs.” Development within all three
reward. For example, the item called “Mixed Use
categories is allowed as long as it contributes to
per Building” explains the criteria for earning
reaching the thresholds for both population and
credits in this category. In order to obtain points,
jobs in a designated area. By utilizing population
the City requires that the proposed development
and job growth as the primary metrics for
has a minimum of 20% of the building space
development, Imagine Austin has outlined an
allocated for each use—residential, retail, and
original process for encouraging mixed use growth.
office. After achieving the required minimum
threshold for each use, the applicant may receive
additional points for different aspects of mixing
uses within a building. Additional points can be

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Page 18 of 27 Mixed-Use Development
earned for including residential above the first To see the complete Austin scorecard visit:
floor, street level pedestrian uses, and/or having http://www.epa.gov/smartgrowth/scorecards/austin_
two or three uses within the building. Each of these matrix.pdf
categories is then weighted. In this case, the
location of residential units above the first floor
earns the most points. For further information about the Smart Growth
Criteria Matrix, visit:
The Smart Growth Criteria Matrix was employed in http://www.epa.gov/smartgrowth/scorecards/project.
Austin as a means for both implementing desired html
growth and providing financial incentives for
proposed development that aligns with the goals
outlined by the City in the comprehensive plan.
This method has been utilized by a variety of cities,
counties and states.

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 To view full-size map, visit:
ftp://ftp.ci.austin.tx.us/GIS-
Data/planning/maps/Fig_4.5_Growth_Concept_Map
_24x36-2_Map.jpg

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ORANGE COUNTY
Orange County’s
The following provisions to implement mixed-use
Comprehensive Plan
development on identified corridors are also
Destination 2030 provides
included in the plan:
guidance for retrofit into
mixed-use formats, to  Properties may be designated a Mixed-Use
implement the overarching Corridor (MUC) Future Land Use
plan goal of making more designation. This option is available only
efficient use of land, through a staff-initiated process and must
infrastructure, and services consider the following criteria (FLU 2.2.6):
within the Urban Service 1. Access to a 4-lane road within the Urban
Area. (Additional policies that Service Area;
address locational criteria for 2. There are opportunities for infill, reinvestment
commercial development are described in the Strip and redevelopment consistent with the Infill
Commercial case study memo). Master Plan and Mixed-Use Activity Center
(see Urban Form);
Urban Strategies: Mixed-Use 3. Locations where infrastructure can be more
fully used such as an Alternative Mobility Area;
Orange County’s Plan contains policies to develop,
4. Automobile, bicycle, and pedestrian facilities
adopt, and implement mixed-use strategies and are adequate to accommodate safe and
incentives; objectives include reducing trip lengths, convenient access;
providing for diverse housing types, using
5. There is potential for compact, pedestrian-
infrastructure efficiently, and promoting a sense of friendly, mixed-use opportunities in the
community. Specifically, the Plan states: surrounding neighborhood;
6. There is potential for a mixture of retail, office
FLU 2.2.4. Projections indicate that Orange County is multifamily and civic and public uses to
anticipated to have an adequate amount of single use discourage underutilized strip-style
commercial land available throughout the planning development;
horizon. As part of the Destination 2030 Plan, Orange
County will be transitioning to more mixed-use options 7. There are opportunities to create linkages with
available for new commercial future land use requests, activity centers and other similar mixed-use
including vertical mixed-use. As part of this transition, patterns of development; and
the County will update its land development code to 8. Where these locations are supportable by
provide incentives to achieve a complementary mixing studies.
of uses by revising development standards to remove
constraints for development meeting criteria that may  The Plan further states the County may
include, but is not limited to, the following: establish Mixed-Use Corridors with
1. Location within the Urban Service Area, with minimum FARs, implemented through
special emphasis on the Alternative Mobility Area and modifications to the Land Development
potential Transit Corridors; Code.
2. Locations identified in the Infill Master Plan,
locations consistent with FLU3.2.2 and FLU3.2.3, and Urban Form: Mixed-use Activity Centers
locations identified as Energy Economic Development
Zones; Orange County promotes pedestrian-friendly,
3. Locations that will facilitate the County’s Mobility compact, transit-ready and transit-oriented
Planning efforts, such as those locations that either development in Mixed-Use Development Activity
have or potentially can: Centers. Mixed-Use Development Activity Centers
o Establish and promote community and aim to achieve energy conservation and reduce
neighborhood connectivity; automobile use through greater multi-modal
o Provide multimodal opportunities for enhanced connectivity, supporting transit services, and
mobility, improved access, and flow of people and opportunities for workforce housing, while
goods; encouraging quality urban design standards to
o Have proximity to existing or planned transit achieve attractive pedestrian-friendly
corridor or transit stop.” environments. This option does not require a
Future Land Use amendment if the stated policies
are met, which include:

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  Locational considerations
(within urban service area; at
locations for multimodal
connectivity; environmental
factors: wildlife, hydrology)
 Design considerations
(proposed mix of uses;
pedestrian-friendly design
standards; shared parking;
transition to neighborhoods)
 The size and location of
required sub-districts (Core,
Edge, Gateway) determined
through a Master Plan or
unified Planned Development-
Land Use Plan. A charrette
process is required to create
the Master Plan.
 Criteria is established to
determine the appropriateness
for promoting a Mixed-Use
Development Activity Center at
a specific location (see chart,
right). Regional Mixed-Use
Development Activity Center
designation requires at least 14
points; Community Mixed-Use
Development Activity Center
designation requires at least 10
points. TOD and Neighborhood
Activity Nodes are subject to
separate criteria. Priority
consideration is given for
locations adjacent to two major
arterials, transit, or freeway of
interstate; where transit does
not exist, shall be “transit-
ready” by providing rights-of-
way for future stations or
transit corridors.
 Minimum and maximum
densities, desired mix of uses
established by type (Regional,
Community, TOD and
Neighborhood Centers)

The requirements of this set of policies,

specifically the design/ development
standards and charrette requirement,
render this approach promising to
achieve the desired physical results.

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BEST PRACTICES
Best practices for successful mixed-use
development includes policies that prioritize or
reward projects for combining land uses, providing
a variety building types, shortening or eliminating
automobile trips, and facilitating the use of
alternative modes of transportation. Oregon’s
Commercial & Mixed-Use Development Code
Handbook and the Urban Land Institute’s Mixed-
Use Development Handbook each offer detailed
guidance on methods for implementing policies that
work.

Commercial & Mixed-Use Development

– Code Handbook
The Commercial & Mixed-Use Development -- Code
Handbook is a useful “how-to” guide for local
governments and organizations that are familiar
with public policy. The handbook begins by
outlining the basic principles that define effective
mixed-use development including: the efficient use
of land resources and urban services, compact
neighborhoods, a variety of transportation options,
and human-scaled design standards (for both
streets and buildings). The guide also notes that
mixed-use development involves making regulations and incentives. A comprehensive plan
identifiable “places” full of choices for inhabitants— can be particularly effective by directing
choices for how to arrive at these destinations, what commercial development to nodes and centers
to buy, where to work, and where to live. Strategies instead of continuous strips along corridors. This
for implementation, best practices, and model can be carried out by including growth maps in the
ordinances are also contained in the document. comprehensive plan that designate corridors and
centers where mixed uses are most appropriate.
While Chapter 3, titled “Plans and Policies
Supporting Smart Development” is most useful for Regulating land use in a manner that reflects the
those interested in modifying comprehensive plans principals of Smart Growth by specifically
and other planning ordinances, the goals that designating areas where mixed use is desired is one
define these policies are outlined in Chapter 2. In of the first steps to improving the quality of
order to develop “compatible land uses close together development. A series of regulatory incentives can
in appropriate locations,” independence of strengthen this initiative. For example, in the case
movement—for people of all ages—needs to be of Portland, Oregon, a streamlined application
abundant. Mobility options such as sidewalks, bike process for mixed use proposals is in place. This
lanes, transit stops, and slow-traveling automobiles method makes the process of constructing mixed
are cornerstones for this kind of development. use buildings easier for the developer. Other
Safety and variety are also key in a successful regulatory incentives are also suggested including:
mixed-use environment. utilizing administrative reviews as an option (as
long as the project meets stated objectives),
Effective mechanisms for cities, counties, and providing density, building height and/or floor area
developers include both regulatory and financial ratio bonuses for proposals that have mixed use and
incentives. The handbook notes that comprehensive pedestrian-friendly design, allowing mixed-master
plans, specific area plans, local street plans, capital plans to set the development framework, or
facilities plans, and transportation system plans allowing automatic adjustments (of a specified
are all potential avenues for adding mixed-use percentage) for lot coverage.

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In addition to regulatory improvements that
stimulate mixed-use buildings, financial benefits
can also be used. The handbook recognizes that
“Commercial and mixed use projects, like most
developments, are fundamentally driven by the
profit potential of the deal. If the potential exists for
an adequate return on investment within the
developer’s timeframe, then the project can move
forward through the permit process, including
obtaining land use approvals.” Many cities in
Oregon have utilized benefits of this type in
renewal districts or specific areas where mixed uses
are preferred. There are several financial
mechanisms to be considered, including:
 Tax increment financing that offers funding
for land acquisition in targeted locations
 Tax abatement for the housing component
of a mixed-use project
 Permit fee reduction
 System development fee reduction or waiver
in designated areas
 Utilizing the incentive-based Smart Growth
Criteria Matrix to alleviate process fees
 
Financial and regulatory guides can work together
and can also be applied to separate plans or areas.
The handbook reminds policy-makers and
organizations to customize these tools in order to
best respond to the specific context in which they
are working.

In Chapter 5, the handbook lists a series of charts

and graphs that help describe a common language
to be used within a community. The intent of this
section is to help those that are amending policy to
identify clear terminology.

At the conclusion of the handbook, the authors

include a model ordinance for implementing mixed
use as an example for policy-makers. The model
ordinance is intended to be adapted to fit within
comprehensive plans, specific area plans, and other
planning frameworks. The conclusion reiterates the
idea that a standard rule applied universally will
not result in successful development. A flexible
framework, rooted in the principles of Smart
Growth, will be most effective.

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Mixed-Use Development Handbook
The Mixed-Use Development Handbook from the
Urban Land Institute is another resource for
planners and policy-makers. This reference includes
examples of places where mixed uses have
contributed to the vibrant character of a place.

The handbook explains various aspects of Smart

Growth and New Urbanism in much greater detail
than most publications of this type. A recap of the
history of the built environment—political,
architectural, and financial—is discussed in depth
in the first three chapters of the book. The pages
are filled with examples of mixed-use development
in both the United States and abroad. In Chapter 8,
ten case studies are reviewed, each of a different
type and size. Each case study includes references
to the policy utilized to produce mixed uses and the
amount and distribution of each use.

The information contained in Chapter 4 is most

useful for municipalities and organizations. Like
Oregon’s handbook, the Urban Land Institute is
quick to point out that financial incentives—when
used in the appropriate context—can act as a much-
needed stimulus for mixed use development. The
Urban Land Institute details methods a mixed use is required (in either a comprehensive
municipality might employ to create incentives: plan, development plan, or related ordinance) have
simplify the building approval process, clean up had more success with implementation.
brownfield sites (or provide funding to do so), allow
tax abatements and incentives, provide public Additional resources:
parking infrastructure, provide public financing
mechanisms, and/or provide additional public Additional best practices for mixed use are also
infrastructure such as streetscape improvements. available. For a compilation of best practices on
The handbook notes that a successful public/private many subjects related to compact development and
partnership between the local governments and a mixed use, see: New Urbanism Best Practices Guide
developer can improve growth patterns. and the Urban Land Institute’s Placemaking.

A chart in Chapter 4 titled, “Zoning Tools for For more specific resources related to Smart
Encouraging Mixed-Use Development” (see page Growth, see Getting to Smart Growth
26) lists a series of options for altering regulations http://www.smartgrowth.org/pdf/gettosg.pdf and
to encourage mixed-use such as: adding a Mixed
Use Zoning District, an Overlay District, a Planned Getting to Smart Growth II
Unit Development, a Specific Plan, or implementing http://www.smartgrowth.org/pdf/gettosg2.pdf.
a Performance Standard. The pros and cons of each
option are listed in the graphic, highlighting the
difference in expense for each method as well as
common problems with neighboring communities.

Using several examples, the book compares the

success of cities and counties that have required
mixed use rather than permitted it. Cities like
Washington DC that have designated areas where

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POTENTIAL APPROACHES
FOR HILLSBOROUGH COUNTY
The following approaches, derived from analysis of
case studies as well as input gathered through focus 5. Reconsider density caps in existing FLUM
group meetings conducted in April 2014, are among categories.
those that should be considered for promoting 6. Expand the use of vision maps in each
mixed-use development in Hillsborough County: plan.
a. The vision map could differentiate between
1. Move mixed-use policies away from a stable developed areas versus undeveloped or
quantitative approach of precise floor-area- transitioning areas.
ratio caps and rigid percentages of different b. Urban centers (existing and proposed) could
uses, toward policies that define the desired be identified, with policies that describe what
outcomes and describe how they can be made could/should happen there.
easier to accomplish.
7. Experiment with a scorecard approach for
a. New policies could differentiate between new
evaluating development proposals.
self-contained mixed-use developments and
the more common situation where mixed uses 8. Organize new policies using a common
can/should occur in close proximity and format and vocabulary, distinguishing
interconnected, but may not be created by between policies and strategies.
one master developer. a. Policies are statements of intent and general
b. New policies could differentiate between direction that a city or county sets to meet its
stable developed areas versus undeveloped or goals and objectives; policies direct the
transitioning areas. manner in which actions and decisions should
c. New policies should be clear about where and be made.
when they would be applied, and about what i. Some policies provide guidance for making
kind of implementing regulations might be decisions on rezoning applications.
required. ii. Other policies are statements of design
2. Reconsider the reliance on future land use intent.
map (FLUM) categories that specify a b. Strategies are the specific actions,
single use or narrow range of uses. Move techniques, or programs that a city or county
toward character/context categories grouped into will implement to achieve objectives and
a rural/suburban/urban hierarchy that can be policies and solve issues and problems.
directly linked to transportation planning.
i. Some strategies direct other county or
3. For FLUM categories that promote mixed city actions (LDC changes; special
uses: studies; overlay districts; etc.).
a. Focus on the essentials of urbanism such as ii. Other strategies identify incentives that
small blocks that are conducive to uses that can be provided to encourage other
will vary over time as economic and social parties to follow some desired path.
conditions evolve. c. Most regulations belong in land development
b. Commit to removing regulatory obstacles to codes, not comprehensive plans; but some
urban development, such as requiring such as residential density are required by
parking and stormwater on each site, and the state to be in comprehensive plans.
requiring suburban buffers or open-space
9. Provide incentives for development
requirements in urban settings.
proposals with small blocks, and with
4. Encourage new mixed-use developments to through streets with no more than 1/4-mile
use form-based coding techniques instead of spacing.
bubbled PD concept plans.

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