Expanding Florida’s Rental Housing Supply Through Adaptive Reuse
Adaptive reuse is a unique opportunity for public and private investment to work together to solve the housing crisis in Florida.
Tampa’s Armature Works, a former trolley barn, has been transformed into a thriving mixed-use space featuring a market hall, restaurants, and event spaces.
What is Adaptive Reuse?
Adaptive reuse refers to the process of repurposing existing structures for uses other than their original intent, offering an efficient and sustainable solution to the evolving needs of urban environments.
Particularly in the current context of housing need, adaptive reuse presents a timely opportunity for residential conversions.
We studied five sites across Florida that demonstrate a variety of adaptive reuse opportunities that are indicative of potential sites across the state and country.
Adaptive reuse is an unique opportunity for public and private investment to work together
Through this project, we identified four policy ideas that can unlock adaptive reuse across the state. Each case study uses one or more of these policy ideas to expand housing through adaptive reuse.
The Sites
Mall Regeneration for a new Town Center
The decline of traditional malls provides a unique opportunity to reenvision these vast spaces as holistic town centers. By infusing them with a mix of housing, offices, and recreational facilities, we can create vibrant, pedestrian-friendly hubs that cater to a wide range of community needs, fostering a sense of place and connection.
Regency Mall, Jacksonville, FL
- Market Jacksonville
- Current Use Shopping Center
- Proposed New Units 250 (Phase 1)
Regency Mall, Jacksonville, FL
Downtown Office Conversion
Repurposing downtown office spaces presents a chance to breathe new life into central urban areas, converting underutilized or aging office structures into vibrant residential, retail, or mixed-use spaces. This transformation can increase downtown foot traffic, diversify the local economy, and enhance nighttime vibrancy.
Empire Office Building, Orlando FL
- Market Orlando
- Current Use Office / Mixed Use
- Proposed New Units 58
Empire Office Building, Orlando FL
Unlocking Affordability with Motel Conversion
Conversions of motels and hotels that would otherwise perform poorly with low occupancy are an opportunity to add new critical affordable apartment homes.
Inn On the Hill Motel, St. Petersburg, FL
- Market Tampa / St. Petersburg
- Current Use Motel
- Proposed New Units 28
Inn On the Hill Motel, St. Petersburg, FL
Adding Housing in Commercial Corridors
Integrating housing options into commercial corridors offers dual benefits: It injects a residential population that can support local businesses, and it promotes walkability. This approach creates lively, 24-hour neighborhoods and provides much-needed housing in job-rich corridors while optimizing land use in densely populated areas.
Park Shore Plaza Shopping Center
- Market Naples
- Current Use Shopping Center
- Proposed New Units 58
Park Shore Plaza Shopping Center
Historic Preservation & Reuse of an Office Building
Historic office buildings stand as testaments to a city's architectural and cultural legacy. By preserving and adaptively reusing them, we not only uphold this rich history but also introduce modern functionalities—creating spaces that are both character-rich and equipped to serve contemporary demands.
Dade-Commonwealth Office Building, Miami, FL
- Market Miami
- Current Use Office
- Proposed New Units 190
Dade-Commonwealth Office Building, Miami, FL
The Policy Ideas
State Historic Tax Credits
This is a financial incentive provided by a state government, designed to promote the preservation and adaptive reuse of historic properties.
When property owners or developers undertake a restoration project for a designated historic structure, they can receive a tax credit against their state tax liability.
This credit is usually calculated as a percentage of the eligible expenses incurred during the restoration or rehabilitation process (10% in most states).
Key Benefits
- HTCs help ensure historic landmarks and structures, which are essential components of a state's identity and history, are preserved for future generations.
- HTCs promote the adaptive reuse of existing buildings, aligning with environmental sustainability goals.
- HTCs promote the adaptive reuse of existing buildings, aligning with environmental sustainability goals.
- State HTCs often act as a catalyst, drawing in significant amounts of private capital for historic restoration projects. For every dollar granted in tax credits, several more can be generated through private investments.
Expanding the Live Local Act
Zoning and tax incentives have unlocked a large set of properties across the state through the Live Local Act. However, projects below 70 units do not qualify. As such, separate negotiations with the county and city may be required, delaying affordable units across the state.
Downtown Revitalization Incentives
Downtown revitalization incentives, like the ones in Miami and Orlando can go a long way in ensuring that new adaptive reuse projects in downtowns across the state can breathe life into downtowns as a mix of residential, commercial and recreational spaces can deliver economic impact, increase tourism, and promote sustainability.
Key Benefits
- Economic Growth: Revitalization can boost local businesses, increase property values, and attract new investments, leading to job creation and greater tax revenue.
- Enhanced Community Identity: By preserving historic landmarks and promoting local arts and culture, revitalization fosters a strong sense of place and pride among residents.
- Sustainability: Upgrading infrastructures and promoting walkability reduce environmental footprints, decrease traffic congestion, and encourage eco-friendly transit options.
Master Planning Support
A city or other public entity acquires land and conducts master planning efforts, leasing out land to developers for long-term agreements. These are often paired with property tax discounts or PILOTs (Payment In Lieu Of Taxes) to incentivize development in a strategic part of the city.
How does it work?
Once a city acquires land, rather than selling these lands to developers, the city becomes a master lessor, leasing out the land to developers under long-term agreements. These lease agreements can stipulate specific developmental guidelines ensuring that projects align with the city's broader urban vision for mixed-use development.
The leases are often under market rate, to first provide the incentive for private investment in the area. Future lease revenues can be reinvested into public amenities, infrastructure, or further land acquisition. This approach not only stimulates purposeful urban development, but also retains public control over valuable land assets, enabling dynamic and responsive city planning over time.