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SEP 16 1996 Urban Redevelopment in Sunbelt Cities: Strategies and Approaches Urban Redevelopment in Sunbelt Cities: Strategies and Approaches by JAMES A. MOORE Bachelor of Science in Art & Design Master of Science in Architectural Studies Massachusetts Institute of Technology 1980, 1982 Master of Science in Architecture Master of Architecture Doctor of Philosophy University of Pennsylvania 1986, 1987 Submitted to the Department of Architecture in Partial Fulfillment of the Requirements for the Degree of MASTER OF SCIENCE in Real Estate Development at the MASSACHUSETTS INSTITUTE OF TECHNOLOGY September 1996 @ 1996 James A. Moore All Rights Reserved The author hereby grants MIT permission to reproduce and to distribute publicly paper and electronic copies of this thesis document in whole or in part. Signature of Author James A Moore Department of Architecture 01 August 1996 Certified by Gary Hack Professor of Urban Design Thesis Supervisor Accepted by Professor William C. Wheaton Chairman, Interdepartmental Degree Program in Real Estate Development OF~ TEHOL SEP 16 1996 Urban Redevelopment in Sunbelt Cities: Strategies and Approaches by James A. Moore Submitted to the Department of Architecture in Partial Fulfillment of the Requirements of the Degree of Master of Science in Real Estate Development at the Massachusetts Institute of Technology ABSTRACT Most Sunbelt cities reflect the suburbanization that characterized urban growth and development over the past forty years. Given this dispersion, these cities often contain large areas of strategically located land that once was fully-developed, but is now either vacant or dramatically under-utilized. This condition is particularly prevalent in the older center city areas. In general, planners and government officials view these under-developed sites as having a claim on some locational advantage; they have actively worked to successfully redevelop such locations. Private sector developers, however, have mixed responses to this hypothesis, generally ignoring such under-developed older locations. This thesis examines the nature of urban under-development in Sunbelt communities, organizing the field into an explanatory matrix based on typological, causal and situational factors. The work builds on the premise that inner-city environments represent untapped competitive advantages, and addresses the roles of both the public and private sectors in realizing the potentials represented by these under-developed properties. To date, formalized responsibility for urban redevelopment has been predominantly in the hands of the public sector. However, as financial, economic and regulatory roles change, the private sector will increasingly be called upon to help advance public agendas. Can the strengths of the private sector be brought to bear on these under-developed properties, thereby helping advance the public sector's social and economic programs, while still meeting the private sector's financial returns? The challenge in the upcoming decades will be to economically and profitably redevelop the myriad parcels of land that litter the city centers. Because the public moneys to do so are not available, the financing, direction and operational energy for such projects will have to come from the private sector. The goal for the cities in such instances, will be to streamline the process of redevelopment, and to provide the organizational, regulatory and legal framework within which private sector developers can profitably exploit the largely untapped potentials of these in-town locations. This thesis documents four examples of urban neighborhood redevelopment efforts, and compares and contrasts them for elements that might be fruitfully applied to future redevelopment efforts. Thesis Supervisor: Gary Hack Title: Professor of Urban Design, School of Architecture & Urban Planning Table of Contents Introduction Organization of the Document Chapter I Sunbelt Redevelopment e Florida: Archetypal Sunbelt Environment e The Rise of the Suburbanized City Chapter II Patterns of Development and Redevelopment in Sunbelt Cities 26 Arguments For and Against In-town Redevelopment 29 Post-War Urban Redevelopment 36 Chapter III Under-Development: A Brief Typology 39 1. The Leftover Site 39 2. The Abandoned Institution 41 3. The Outdated Commercial Strip 48 4. The Bypassed Neighborhood 56 Chapter IV Factors Hampering Redevelopment 61 A. Landbanking and Speculation 61 B. Highway Construction 63 C. Zoning Mismatches 64 D. Proximities and Perceptions 65 E. Environmental Factors 66 F. Development Factors 69 G. Financial Factors 70 H. Economic Factors 74 I. Regulatory Factors 76 Chapter V Options for Transformation: Case Studies from Tampa FL 79 Revitalization In and Around Downtown Tampa 79 Case Studies of Urban Redevelopment 82 1. Hyde Park: Classic Gentrification 84 2. Tampa Heights: Struggling Incumbent Regeneration 93 3. Harbour Island: Private Sector Neighborhood Redevelopment 110 4. Ybor City: An Old Neighborhood Looking for New Uses 119 Chapter VI Conclusions 127 Contrasts and Comparisons 127 Roles for the Public Sector 133 Opportunities for the Private Sector 135 Bibliography 139 List of Figures Figure 1: Map of the United States Indicating the Location and Range of the "Sunbelt" Figure 2: Population and Land Area Growth for Selected Cities Figure 3: Map of Florida Showing Location of Tampa, St. Petersburg and Orlando Figure 4: Plan of Central Tampa Showing CBD and In-Town Neighborhoods Figure 5: Advertisement for Suburban Master Planned Community North of Tampa Figure 6: Example of Left-Over Site in Tampa FL Figure 7: Under-Utilized Cigar Factory in Tampa FL Figure 8: Abandoned School in Tampa Heights FL Figure 9: Ybor Square Redevelopment Project, Ybor City FL Figure 10: Plan of Tampa Showing Older Commercial Strips Figure 11: Abandoned Buildings Along Kennedy Boulevard, Tampa FL Figure 12: Vacant Blocks of Land in Ybor City Figure 13: Abandoned Service Station, Tampa FL Figure 14: Plan of Hyde Park Neighborhood, Tampa FL Figure 15: Mixed-Use Development in Old Hyde Park Village, Tampa FL Figure 16: Infill Courtyard Townhouse Project Figure 17: Duplex Infill Development Figure 18: Plan of Tampa Heights Figure 19: New Residential Construction in Tampa Heights Figure 20: Obsolete Commercial Strip Along Florida Avenue, Tampa Heights Figure 21: View of Downtown Tampa from Harbour Island Figure 22: Plan of Harbour Island Figure 23: Island Walk Apartment Complex, Harbour Island Figure 24: Plan of Ybor City Figure 25: Seventh Avenue, Ybor City Figure 26: Vacant Parcels, Ybor City Biography Before enrolling in the Center for Real Estate at MIT, James A. Moore was an Associate Professor in the School of Architecture & Community Design at the University of South Florida in Tampa FL, and the Director of the Florida Center for Community Design & Research, also at USF. His teaching, research, and consulting work have focused on urban design and development, with particular emphasis on Sunbelt environments and the redevelopment of older urban neighborhoods and properties. Moore has published numerous articles on these subjects in both popular and professional journals, and has lectured extensively. A licensed architect, he also practices in the area of residential design and development. Upon completing the program at the Center for Real Estate, Moore will return to Tampa and resume his work there. Acknowledgments Thanks are due to all those who played a part in enabling me to take a year away from my work at the School of Architecture & Community Design at the University of South Florida. Spending nine months in Boston, away from family, friends and associates, was a mixed blessing. Thanks to all those in Tampa who held down the fort while I was away. ^ Thanks, too, to the Center for Real Estate at MIT, for providing a stimulating intellectual environment. Particular thanks to my classmates in the MIT/CRE Class of 1996 for making this year such a great experience. Good luck to all in your future endeavors. Thanks to all those who assisted me in researching this thesis. Too numerous to name individually, this list includes staff from the City of Tampa, the Ybor City Community Development Corporation, Tampa Preservation, Inc., the Tampa/Fjillsborough City-County Planning Commission, the Preservation Board, as well as numerous private-sector architects and developers, business people and citizens of the community. Particular thanks go to: * Alexander Ratensky, Dean of the School of Architecture & Community Design at USF, for all his support; * The other faculty and staff at the School, for taking up the slack in my absence; " Stanford Anderson, Chair of the Department of Architecture at MIT, and Michael Joroff, also from MIT, for their support; " Bill Wheaton, for a putting up with my questions for an entire semester in what was easily one of the best courses I've ever taken; e Gary Hack, for his encouragement and insight throughout my time at MIT, and particularly while I was writing this document. Finally, special appreciation, gratitude and love to my wife, Jana, who, despite the undue burdens it placed on her, encouraged me to pursue this effort; and to my one-year old son, Quin, who showed unflappable high spirits throughout. Introduction Neighborhoods and properties falter when the conditions that supported their initial economic purpose are no longer valid, and functional or contextual factors create a situation in which no viable alternative can be found. A factory shuts down and no new use can be found for the old facility. It falls into disrepair. Residents of the area who used to
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