Is a mix of housing missing from your mall redevelopment equation?
March 11, 2025
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American malls are redefining urban neighborhoods. Equitable planning is essential to making them successful.
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For most Americans, owning a home is a pillar of the American dream. Unfortunately, this dream feels out of reach for many. A recent study shows more than half of US renters doubt they’ll ever own a home due to affordability issues. This is compounded by the harsh reality that the US housing market is short 1.5 million units. That drives up home prices. Even a small yearly increase of 4.3 percent, as seen in 2023-24, affects the standard of living for most American families.
We can trace the roots of this issue back to insufficient construction after the Great Financial Crisis, combined with a surge in demand during the pandemic. This has led to an ongoing struggle for the housing market to meet the needs of most Americans. At this pace, it will take more than 20 years for new construction to close the housing gap. Yet, a powerful solution may lie in an unexpected place.
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Global Mall uses mixed-income housing to achieve the community’s goals for the multicultural arts village in a Nashville, Tennessee, suburb.
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American malls are evolving beyond just retail and entertainment by adding housing to the mix. Nearly 54 percent of all new mall redevelopment projects include housing in a mixed-use format, according to a JLL study. This creative reuse strategy addresses two issues—empty retail spaces and the lack of housing options.
For mall redevelopment to help close the housing gap, it must be designed for all. Mixed-use projects often attract higher-income residents. This could reinforce existing economic and cultural divides and worsen the housing shortage.
Thoughtful urban planning will be the difference in an uptick in luxury apartments or affordable homes across American malls. A balanced approach, where people from various income levels can coexist and thrive, is crucial to creating a resilient and adaptable future for everyone. Here are five mall redevelopment strategies to turn single-use malls into mixed-use hubs. They will help close the housing gap through a wide range of housing types and mobility choices.
1. Build 1,000 housing units within a quarter mile of the mall
Bringing a mall site back to life starts with housing. Simply put, it needs more people within comfortable walking distance. And the number of housing units needed to support that must increase significantly. Planners and developers should aim to have a minimum of 1,000 housing units within a quarter mile of key amenities like retail, parks, schools, and transit.
Single-family homes, even with accessory dwelling units, cannot meet this target alone. Expanding housing options through diverse building types helps create a more diverse and inclusive community. Greater options also support essential infrastructure and walkable, amenity-rich neighborhoods.
For example, in Antioch, Tennessee—one of Nashville’s most diverse and rapidly growing areas—the redevelopment of Global Mall is centered on creating a vibrant arts and innovation district. One that is supported by mixed-use housing. Our team helped develop a planning framework that introduced a variety of housing types. These efforts helped provide the critical residential density needed to sustain local businesses, public spaces, and transit access.
The plan also included multifamily housing, a portion of which is dedicated to artists. It also has cultural and commercial spaces. Incorporating both these elements goes a long way in reinforcing the area’s identity. It also helps make the area more livable, connected, and economically resilient. By putting a focus on a critical mass of housing within walking distance, the Global Mall transformation is setting the foundation for a thriving and authentic community-driven district.
2. Create a more flexible and responsive zoning framework for diverse housing
Today, most American malls are zoned for commercial use. This zoning often excludes housing, which restricts supply and drives up prices. Reforming these restrictive zoning laws to allow for more mixed-use development and greater housing density is complex. The process can be costly and time-consuming. It takes a lot of work. We have to look at rezoning applications, environmental impact assessments, and public hearings. These can serve as barriers that make redevelopment daunting.
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New convenience retail, compatible with the housing and anchor use, would enliven Trumbull Mall and its surrounding area in this suburb outside New Haven, Connecticut.
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There are ways to simplify this transformation. Consider these ways to streamline workflows:
- Clear master planning principles
- Design guidelines
- Implementation guidance
They will help make the zoning process more accessible and efficient for today’s housing demands. If we want diverse housing—and communities—we must modernize outdated zoning and regulatory systems.
Let’s look in on Trumbull, Connecticut. Here, we see that process in action. Old zoning regulations posed challenges to transforming the aging Trumbull Mall site. The laws limited the mall’s potential for housing, mixed-use development, and greater economic vibrancy. Our team conducted a market feasibility and land use study. The goal? To look at redevelopment options. And to find zoning barriers that restricted adaptability.
In the end, we provided a responsive zoning framework that aligns with the community’s vision. We introduced strategic changes to support a mix of housing, retail, and public spaces. We helped Trumbull set a path toward an achievable vision. The key to success was focusing on regulatory obstacles and then offering clear guidance to overcome them.
3. Expand mobility solutions for better connectivity
In the past, suburban planners often prioritized growth over strategic planning. As a result of that focus, many suburbs lacked walkability and convenient access to key services and amenities. Today, there is a greater demand for connectivity and access. How can mall redevelopment sites can offset service gaps and reduce daily travel? By prioritizing first- and last-mile travel, bike and pedestrian infrastructure, safety, and a range of housing options.
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South Bay reinvents the typical suburban-style shopping center in Boston, Massachusetts. It integrates 475 units of housing in the historic neighborhood of Dorchester.
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Take the case of South Bay. It was an underutilized area adjacent to a big-box retail shopping center in the historic Dorchester neighborhood of Boston, Massachusetts. The Edens Group took a closer look at the commercial area and wanted to integrate walkability and low-carbon elements into the area. Our team helped develop a plan to connect pedestrian-friendly corridors to nearby transit hubs. After more than four years of design and construction, visitors and residents from 475 new housing units now enjoy new retail and dining options, a movie theater, and the vibrancy of a 175-room hotel.
4. Go beyond making a community look vibrant—create that vibrancy using placemaking
Well-designed public spaces bring together people from different backgrounds and help build community ties. This is what transforms a community from merely being called vibrant to truly becoming one that is. These spaces are where people exchange ideas and understanding. This sense of community encourages people to spend time in, and ultimately invest in, the community. And it all starts with listening.
" }Today, most American malls are zoned for commercial use. This zoning often excludes housing, which restricts supply and drives up prices.
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Placemaking is both a physical and social endeavor. It shapes not just the built environment but also the ways people connect, interact, and build community. It helps the redevelopment meet the diverse and equitable needs and priorities of the people that will use these spaces every day. Mall redevelopment projects that incorporate housing, public gathering areas, and a mix of uses can be more than just transformed properties. They can become dynamic, inclusive, and livable neighborhoods.
A thriving public realm is essential to transforming former mall sites into dynamic, people-centered districts. As an example, we helped the City of Moorhead in Minnesota develop a master plan aimed at revitalizing its downtown. At the heart of the plan was public life, accessibility, and community identity. What was a key to the plan? Making sure the new downtown fostered community and improved life for residents while keeping the city connected.
Through our work with the city, we were able to develop a plan that reconnected streets and open spaces. These efforts will not only enhance walkability but will improve social connection as well. The plan also puts an emphasis on multifamily housing. This will help the district remain lively and accessible for residents of all backgrounds. These considerations are pivotal when planners look to design and develop districts for future placemaking efforts.
5. Establish funding pathways for developers
The rise in vacant or underused shopping mall properties is a growing financial concern for both cities and developers. Redeveloping a mall into a mixed-use property—that includes housing—can be a huge investment. It can cost between $150 and $250 per square foot. Without change, cities risk losing millions in tax revenue. They also miss the chance to tackle housing shortages. Mall redevelopment presents a win-win scenario, providing much-needed housing.
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A multimodal, context-sensitive design will position Bank and Cherry—parallel streets one block apart—as key links in downtown Burlington, Vermont.
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Planners and political leaders have many tools to help redevelop malls. These might include:
- Property tax abatement
- Tax-increment financing (TIF)
- Payment in lieu of taxes
- Acquisitions
- New construction
- Renovation costs
- Regulatory compliance costs
After the success of its Waterfront TIF District, the City of Burlington, Vermont, embarked on creating a second TIF district in downtown. This new district aimed to revitalize the iconic pedestrian mall. Working on an accelerated schedule to meet the developer agreement, we designed a multimodal, context-sensitive plan to reconnect Bank Street and Cherry Street. The creation of the TIF district helped establish downtown as a walkable urban center. But it also enabled the City to leverage approximately $20 million in construction funding from the developer.
These kinds of tools can help developers meet the needs of families of varied sizes and income levels. Tax credits for integrating housing into mall redevelopments can also support funding gaps.
Helping communities in multiple ways
Cutting the red tape opens the door for Americans to own a home. It also bolsters tax revenue streams for community infrastructure and amenities.
Despite challenges like zoning, construction costs, and design constraints, developers are taking a chance on underused mall spaces like big box stores and parking lots. And it’s paying off as more and more cities cut the red tape to add more diverse housing options. This symbiotic relationship paves the way for Americans to own their first homes and encourages new tax revenue streams.
Mall redevelopments can help transform communities around the country. When we combine inclusive and affordable housing with needed amenities—things like parks, shops, and public services—the future is bright for more connected and resilient neighborhoods.
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