Gwinnett Place Mall Pilot Study

Transcription

Gwinnett Place Mall Pilot
Study
prepared for:
Gwinnett Revitalization Task Force
prepared by:
the HOK Planning Group, Robert Charles Lesser & Co.,
URS Inc., USInfrastructure
October 21, 2004
Gwinnett Place
Place Mall Pilot
Study
Revitalization Plan
TABLE OF CONTENTS
1.
2.
3.
4.
5.
Introduction
1
Vision
7
Preamble
7
Vision Plan
10
Objective Summary
12
Objectives
15
Improve Mobility
15
Create Policy
23
Capture Job Growth
31
Prune Under-performing Retail
39
Housing Diversity Opportunities
47
Demand Good Design
57
Greenway Integration
73
Recommendations
Action Plan
77
Overview
79
79
Short Term Plan
81
Mid Term Plan
83
Long Term Plan
85
Fiscal Impact
Appendix
87
LISTING OF FIGURES & TABLES
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County Context Map
Study Area
Cities within Gwinnett County
Map of focus points within study area
Existing Road Infrastructure
Planned Transportation Improvements
Proposed Road Infrastructure
Gwinnett Place Mall Road Infrastructure Cost
Study Area Map
Revitalization Zone District Transect
Revitalization Zone District Matrix
Favored Quarter Diagram
F.I.R.E. Chart
GSU Employment Projections
Time frame & Estimated Capture Rates for Office
Average Retail per square foot
Trade Map
Retail Life Cycle
Retail Pruning Map
Retail Supply/Demand Chart
Age of Homeowners in Study Area
Household Income
For-Sale Demand
Property Demand
Proposed Greenway Integration
Phase Diagram
Projected Development & Values
Residential Values
Occupied Sales per square foot
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Project Overview
The Gwinnett Place Mall Pilot Study is one of three projects identified in the 2002 Gwinnett
Revitalization Task Force (RTF) report to the Board of Commissioners aimed at countering
suburban blight and better management of Gwinnett County’s rapid growth. Formed by the
Board of Commissioners to study the causes of commercial and residential decline, the RTF
found that disinvestment and decline in older areas of the county threaten Gwinnett’s leadership
in business, education, and quality of life. Current conditions in Gwinnett include neighborhoods in
need of social stability, commercial corridors with large amounts of vacant businesses, and activity
centers threatened by traffic-choked roads.
Introduction
Introduction
The RTF identified the goal of economic opportunity and vitality in three typical areas: an Activity
Center, a Corridor, and Neighborhood. Pilot sites within the County selected for further study
were the Gwinnett Place Mall Area (Activity Center) , Stone Mountain Highway - Highway 78
(Corridor), from DeKalb County to Snellville, and the Beaver Ruin Area (Neighborhood). This
document specifically addresses the “activity center” oriented project, highlighting the Gwinnett
Place Mall Area.
A major recommendation of the RTF was to study the Pilot Areas and develop transferable
strategies for other areas of the county also experiencing economic and suburban decline. This
report along with the other two Pilot Studies are in broad terms recommending that Gwinnett
County must do things differently. If changes are not made, to both policy and philosophy, then
conditions will only worsen and decline will increase. In specific terms, the recommendations
found in this report involve changes to County policy that will support a new environment that
encourages mixed use, infill development and revitalization. None of the recommendations in this
study are intended for the county as a whole, and should be limited to a designated Revitalization
Area. All recommendations are based on a broad planning approach and many individual policy
decisions by the Board of Commissioners will be required as implementation strategies are
developed.
Gwinnett Place Mall Study Area
The Gwinnett Place Mall Study Area consists of over two thousand acres and covers an
approximate one mile radius from the intersection of I-85 and Pleasant Hill. This location, selected
by the RTF, represents the quintessential Activity Center Pilot Study for a variety of reasons. As
the old real estate adage purports, real estate success is based on three factors: location, location,
and location. Gwinnett Place was for many years, the center of activity in the County. It was the
location for commerce, shopping and entertainment in Gwinnett. However, as with many early
suburban centers around the country, the factors that once made Gwinnett Place so attractive
(and successful) are no longer present.
Gwinnett Place Mall Revitalization Plan • October 21, 2004
1
Today, there is a significant concentration of vacant
and under-performing retail surrounding the Mall. The
once first tier national big box chains have moved up
the road to Discover Mills or The Mall of Georgia.
Continued expansion and growth has led to significant
demographic shifts in the trading area. Socioeconomic
factors, such as cultural diversity, language, household
size and crime all present additional challenges. These
shifts have resulted in changes in the goods and
services offered at the mall and in the surrounding
centers. The target buyer today is much different than
the days when Gwinnett Place was the place to shop.
What is left is a “glut” of second tier retail with
below average sales per square foot numbers, traffic
problems and a declining aesthetic quality. Gwinnett
Place is now a place to go through and actually
avoided by many.
There is hope however for a return to better days.
A group of concerned business people, property
owners and neighbors are working to form the
County’s second Community Improvement District
or (CID). At the time of this writing, the Gwinnett
Place CID group is gaining momentum and getting
closer to the membership requirements outlined by
Georgia law. Once formed, this group will be able to
“self tax” with the resulting funds spent on specific
improvements within the CID boundary. CID’s have
been (and will continue to be) a key to revitalization
and development in other key centers in the Atlanta
region such as the Cobb Galleria, Perimeter Center
and HWY 78.
It is the recommendation of this team that the County
support and encourage the formation of the Gwinnett
Place CID.
Figure 1 County Context Map
Figure 2 Map of the Study Area
2
Prepared by HOK, Robert Charles Lesser & Co., US Infrastructure, & URS
Introduction
The redevelopment of the under-performing
retail sites into higher performing office and
mixed-use centers will create an environment
allowing the area to thrive once again.
Gwinnett Place Mall can become a “mini-city”
or “town center” for the county.
To give perspective, the Gwinnett Place Mall
Study Area is roughly the size of the City of
Norcross and just slightly smaller than Lilburn.
(See Figure 3 on the right.)
Methodology
The Gwinnett Place Mall Revitalization Study
followed the established public participation
framework used in the Hwy. 78 & Beaver
Ruin Pilot studies. The Gwinnett Revitalization
Task Force has overseen all three studies and,
upon review and analysis of each report, will
make final recommendations to the Board
of Commissioners . Essential to the public
process has been the involvement of the Pilot
Area Focus Team. The Focus Team consists
of property owners, residents, business
owners, and developers (some of whom are
members of the CID Formation Group) with
an interest in the health and prosperity of
Gwinnett Place
The first step in the public process began
in April 2004 with a public meeting of the
Pilot Team and Stakeholders. This was the
kickoff meeting for the study. The agenda for
this meeting included; an introduction to the
project team, a review of the issues to be
addressed, a recap of how and why the area
is in its current state, and an interactive vision
session.
The team discussed the issues to be addressed in
the study.
Stakeholders were asked to choose images of what
they wanted Gwinnett Place to look and feel like.
Figure 3 Cities within Gwinnett County
3
The second day consisted of a series of two hour
interviews with different Stakeholder groups
to understand in more depth the issues and
opportunities facing the study area. Several issues
and concerns were common among the stakeholders
and evolved into a series of themes for the team to
address. Following is a brief summary of these themes:
• Traffic & access are a nightmare... “Can’t get
anywhere at lunch”
• The County must address the traffic problems
for the area to stabilize
Project Team. During this meeting a market assessment
was presented to establish an economic baseline for
the physical plan. The team also, revisited the issues
currently plaguing the study area, and worked with
the group to set the direction for development of the
plan.
After two full work days and interim discussions with
the County Staff, the charrette concluded with a
presentation of the key recommendations for a Vision
Plan. This plan is presented in detail in the Objectives
section of this report.
• The current transportation system is designed
to move people through the area instead of
into the area
• Make it easy to walk
• There is no signage enforcement in the
area...”The weekends feel like a bazaar”
• The negative physical image of the area is a real
issue
• CLEAN UP the area and make it BEAUTIFUL
• Create an Identity / Brand for the area
• Consider benchmark communities and
developments
• County maintenance is an issue
Project team at work during the charrette to produce the plan
for Gwinnett Place
• Promote an increase in home ownership in the
area
• Make the area family friendly
• Foster more community involvement
• There is a real need for public gathering spaces
• There is a real need for parks and recreation
areas in / near the study area.
In mid June 2004 a three day charrette (interactive
work session) was held to develop the Vision Plan
for Gwinnett Place. The charrette included a kickoff
lunch with members of the RTF, the Pilot Team, and
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The project team for the Gwinnett Place Pilot study consists of four firms - The HOK Planning
Group, Robert Charles Lessor & Co., LLC (RCL), URS Corporation, and US Infrastructure. The
firms area of responsibility on this project and their brief background includes:
• The HOK Planning Group - Project Leadership, Planning & Urban Design. The HOK
Planning Group, a specialized business unit within HOK, is committed to delivering
exceptional planning and design solutions through the creative blending of human need,
environmental stewardship, science and art.
Introduction
Project Team
• US Infrastructure - Infrastructure Capacity Analysis. USI is a national GIS, environmental and
engineering firm with extensive experience in Gwinnett County.
• URS - Traffic & Transportation Analysis. URS is a leading provider of outsourced engineering,
technical and operational management.
• Robert Charles Lesser & Co.- Market & Economic Analysis. RCL Co. is the leading
independent knowledge and solutions firm serving the real estate industry. RCL Co. brings
significant experience in regional real estate and revitalization strategies.
Additional team members for the broader revitalization effort include:
• Tunnel-Spangler -Walsh & Associates - Planning & Urban Design on Hwy 78 & Beaver Ruin.
TSW is an Atlanta based planning and design practice focused on the principals of smart
growth and new urbanism.
• Glatting Jackson - Traffic & Transportation Analysis on Hwy 78. Glatting Jackson is a regional
practice of planners, designers and engineers focused on community development.
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The pattern of development that has dominated suburban growth in the post-war era has
created a mismatch between our physical environment and our contemporary lifestyles.
Households have changed dramatically, the workplace and work force have been transformed,
and a near total dependency on automobiles has risen out of rapid suburbanization. The
environment produced by these patterns of development guarantees the continued separation
of land use, priority of resources directed towards the automobile over pedestrians, and the
disintegration of neighborhood, community, and place.
1. Vision
Preamble
The Gwinnett Place Mall Study Area has been defined by the fast paced wave of development
that swept across metro Atlanta. As growth continues and development patterns are refined
to match consumer preferences the earlier development patterns have lost their luster and are
threatened to become second and third tier places.
Gwinnett Place can be revitalized to reflect not only the needs and desires of today’s worker,
shopper and resident, but also be flexible enough to evolve with them while creating a unique
place in the market. In essence, Gwinnett Place can be a mixed-used, sustainable, regional
center. This revitalization effort aims to introduce urbanity as a commodity in a typical suburban
landscape. The Vision Plan draws from the once-common pattern of pedestrian oriented
mixed-used neighborhoods found across the nation. A framework is envisioned that supports a
mixed program of retail, restaurants, entertainment, office, and residential. Plazas, public spaces,
courtyards and parks need to punctuate the plan to offer choice, to create connections and a
memorable series of spaces.
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One immediate benefit for the County and the
study area is the presence of such a culturally diverse
population. The heritage and way of life for many of
these international residents in Gwinnett is that of
dense, walkable communities with a meaningful public
realm and the visible presence of civic influence. These
factors should be considered and leveraged in the
creation of a new Gwinnett Place.
The challenge is to develop an area that responds to
and transforms this existing environment into a time
tested development model. Successful mixed use
communities (in the U.S. and abroad) have several key
factors in common. These factors must be addressed
for Gwinnett Place to once again thrive as the heart of
Gwinnett County. They are:
1. An increase in the intensity of development that
not only provides the level of activity necessary
to foster real community, but that also responds
to the economic factors required to make
revitalization the preferred development option.
6. The inclusion of good design through buildings,
streets and open spaces that “humanize” the public
experience and create a dynamic community life.
7. The ability to capitalize on the unique assets of
an area, including cultural diversity, environmental,
retail, residential, and office resources.
Gwinnett Place is at yet another crossroads in its
evolution. The critical aspect is to create a flexible
framework for development while fostering a
clear vision that responds to and evolves with, the
economic, cultural and demographic realities that
make Gwinnett the success story it is today.
Gwinnett Place is at yet another crossroads in its
evolution. The critical aspect is to develop a flexible
framework for development that fosters a clear
vision for the area that is also able to evolve with the
economic, consumer, and typological evolution of the
American landscape.
2. A community center or civic heart that becomes
the proverbial hub of activity where residents, area
workers, and visitors come together. Gwinnett
Place will be the place where civic, cultural, and
everyday activities mingle.
3. An urban character and form that creates a vibrant
pedestrian-friendly experience.
4. A hierarchy of streets and thoroughfares that
creates options and allows pedestrian and
vehicular activity to safely coexist.
5. The layering and mixing of uses to animate the
experience, create a 24 hour community and draw
people back again and again.
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Gwinnett Place Mall has the opportunity to become a vibrant mixed use regional
center or “mini city” and a metro core that serves as an anchor for Gwinnett County.
It has the potential to evolve into a significant concentration of office space,
higher density housing, a variety of retail formats, all in an aesthetically appealing
environment with the support of appropriate and necessary infrastructure, pedestrian
and automotive mobility.
1. Vision
Vision
Realizing this vision will not be easy. It will require change, commitment and partnership.
•
Change with regard to the current “anti-revitalization” policies in the county. A new
approach will be required that fosters a pro-active, incentive based plans and
ordinances. In conjunction with a new attitude, these tools will encourage
private developers to take the risks necessary to create these new and dynamic
places.
•
Commitment in terms of the County’s willingness to change and to invest in
these older areas. The private sector cannot make this happen on its own.
•
and Partnership with the development community, area residents, property
owners, stakeholders, state and federal agencies who will all be necessary to make this
very difficult work of revitalization a reality.
In this report we have outlined the recommendations and strategies we believe are necessary
to allow and even encourage this change to happen. The recommendations and subsequent
sections of this report are organized around a series of seven objectives. These key objectives
for the revitalization of Gwinnett Place are:
1. Enhance Mobility
2. Change Policy
3. Capture Job Growth
4. Prune Under-performing Retail
5. Promote Housing Diversity
6. Demand Good Design
7. Integrate Parks & Greenspace
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Vision Plan
Figure 4 Map of focus points within the study area
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• For purposes of articulating the vision,
we have illustrated how specific parcels
could be redeveloped. These plans are not
program specific and do not necessarily
reflect the goals of the specific property
owners. While they do represent valid
options for future development, they are
based on the broad market data identified
in the study and are not intended as
development proposals.
• Enhanced connectivity through significant
transportation improvements including
additional bridges over I-85, an extended
grid system near the mall and the rerouting of the mall loop and entry road.
• A new integrated pedestrian oriented
development model based on vertically
mixed-uses and creating walkable
neighborhoods and a beautiful public
realm.
1. Vision
The Vision Plan for Gwinnett Place offers a long range glimpse at the redevelopment
opportunities that are possible in the study area. It attempts to illustrate how each of the overall
Revitalization Objectives can be realized in physical form. These include:
• A series of plazas, parks and open spaces
that are connected and part of a broader
green infrastructure system.
• The implementation of these
redevelopment strategies would truly
transform Gwinnett Place into the mixeduse “mini-city” the County wants it to be.
• A series of vertically mixed-use
developments made possible through a
new land use plan designation and zoning
district.
• Over four million square feet in new office
space ranging from highly visible mid to
high rise along the interstate to integrated
product fronting pedestrian oriented
parkways.
• A series of existing under-performing
retail centers repositioned as mixed-use
centers with a residential or office focus.
• Thousands of new housing units ranging
from three and four story rental units to
for sale townhomes. All are organized
around a pedestrian oriented street grid
and a series of usable open spaces.
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IMPACT
RECOMMENDATIONS
SITUATION
Objective Summary
Improve Mobility
Change Policy
Capture Job Growth
Prune Under-performing
Retail
The current road network
is extremely congested and
can not adequately meet
current demands. This fact
impacts nearly every other
aspect of the study area,
creating an undesirable
location for residents, visitors,
shoppers, and prospective
investors.
Current Gwinnett County
policies related to land
use, zoning, and code
enforcement, do not
support redevelopment
and are detrimental to the
image of Gwinnett Place.
Future projections for
job growth in the region
are robust. Because of
congestion and an ugly
physical environment,
Gwinnett Place is at a
disadvantage to capture
its fair share of this office
demand.
There is too much retail
space in the study area.
Vacancies, poor sales per
square foot performance
and lower tier retailers
are the result.
• Create more
transportation
connections in the existing
network
• Code Enforcement- Police
Department
• Plan for short and long
term office growth
• Code EnforcementCommunity Based
Initiative
• Give developers
needed incentives to
help reposition underperforming parcels
• Prune away underperforming retail for
redevelopment as mixeduse
• Support alternative
transportation modes
• Enhance pedestrian
mobility
• Create a new
“Revitalization Area” land
use classification
• Support creation of the
Gwinnett Place CID
• Establish a strong image/
identity & branding
strategy for the area
The recommended
“mobility enhancement”
projects will be high impact
and high price tag. There
are ”early phase”/ low cost
enhancement projects,
such as signalization and
streetscape improvements,
that should be actively
pursued.
12
Costs for policy changes will
primarily be administrative in
nature. However, additional
study will be required
to develop a detailed
implementation strategy.
• Work on a project to
demonstrate the potential
for new office in the area
• Work with the chamber
to aggressively pursue a
major tenant.
• Foster public/ private
partnership or joint
ventures
• Allow for greater intensity
• Entice Mixed-Use
Development
• Ensure adequate
infrastructure to support
office growth
Additional jobs will
translate into more revenue
generating office space for
the county. The ripple effect
will be a stronger retail
base and a larger daytime
population.
Balancing supply and
demand will create a
stronger retail base and
ultimately a greater
contribution to the county
tax digest.
Demand Good Design
Integrate Parks and
Greenspace
Housing in the study area
is limited primarily to older
garden style apartments. This
high concentration of renters
creates transiency, crime
and other issues that impact
schools and the quality of
adjacent development.
Suburban development
patterns in America have led
to a lifeless public realm
The large lot, single
use, auto oriented
development pattern has
resulted in an area void
of any distinguishing visual
characteristics, putting it
at a disadvantage to new
offerings such as Norcross
Forum and Mall of Georgia.
The study area is void of
any usable open space,
community gathering areas
or recreational opportunities
that contribute to aesthetics
and are necessary to foster
a sense of place. There are
stream beds and other
natural features that can be
utilized along with area parks
to create a comprehensive
open space network.
• Encourage developers to
build for sale and higher
quality rental products
• Integrate existing
successful retail
• Implement the proposed
Greenway System
• Foster mixed-use
redevelopment
• Allow for pocket parks/
open space to be built
into redevelopment plans
• Develop a proactive
strategy to encourage
redevelopment of older
residential properties
• Ensure adequate
infrastructure to support
residential density
Additional residents in the
area will carry an increased
cost of services, but will
help stabilize the are and
generate more retail and
service demand.
• Streetscape Improvements
• Establish consistent Urban
Design Standards
• Ensure redevelopment
projects become a part of
the regional stormwater
management facilities
Cost for design quality range
from the fees required to
retain quality consultants
to administrative cost for
review and enforcement.
Initial costs will relate to
ownership of these “public”
spaces. A strategy and
incentive structure will be
necessary to encourage
developers to contribute to
the “system.” Maintenance
responsibility will also need
to be resolved.
1. Vision
Encourage Housing
Diversity
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Existing Conditions
The study area is typical of suburban landscapes where buildings are large in scale and strongly
segregated by land use. Local zoning codes and traditional development practices have shaped
a suburbia of homogenous land use districts linked by an overly burdened (high capacity) arterial
road network. This pattern of development virtually guarantees all trips must be made by car, and
all of these trips must use the same roadways. Regardless of the trip’s purpose, going to the store,
work or home, all cars are concentrated onto the same collector roads, arterials, and highways.
Even though designed for high capacity, the multi-lane arterials quickly become overloaded,
particularly at peak AM and PM hours, lunchtime and during shopping-oriented holidays as local
traffic and distance travelers get in each others way.
This auto driven landscape not only stretches very limited resources, but also fosters an antipedestrian environment. It is far easier to garner support for automobile improvements then it
is to foster a pedestrian and bicycle friendly network of sidewalks, trails, and public spaces that
support the social and cultural mixing of community.
2. Objectives: Mobility
IMPROVE MOBILITY
The problem of congestion creates not only a transportation problem for the study area, but a
marketing problem as well. Gwinnett Place was built upon its ability to attract shoppers from
the entire metro region. Today, the traffic problems have contributed to a declining market, lower
retail sales, vacancies and a degraded visual quality. There are more competing opportunities for
regional shopping, and issues such as traffic are challenges to drawing shoppers. As such, solving
the traffic problems will determine the ability of the area to attract destination shoppers and
ultimately, its ability to retain and attract tenants.
Many of the roads in the study area are currently at level of service (LOS) F. As the county and
region continue to grow, this trend will worsen without significant improvements. A significant
number have already stopped shopping in the Gwinnett Place Mall area to avoid the congestion.
Due to a lack of connectivity in the area, local traffic only adds to the problem. An interconnected
street grid would alleviate this condition (or at least greatly enhance it) by creating more options.
Typical congestion at the intersection of Pleasant Hill
Rd. & Crestwood Pkwy.
Typical congestion at the intersection of Pleasant Hill
Rd. & Mall Blvd.
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Figure 5 Existing Road Infrastructure
However, what exists is a series of disconnected
neighborhoods, office parks and retail centers which
are respectively served by cul-de-sac, collector and
arterial networks. This pattern does not allow for
alternate routing and adds to the pressure placed on
primary roadways.
The Gwinnett County DOT has done an excellent
job of building and upgrading transportation facilities
to meet the tremendous growth in the county
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over the last 30 years. However, the resources of the
department have mainly been directed at keeping up
with the distance mobility needs of the county rather
than the internal mobility needs of local traffic. Throughput rather than circulation has been the primary focus
of the infrastructure expenditures over the past three
decades. Consequently the investments have been
targeted at the principal arterials at the expense of
other roads types in the classification hierarchy.
The Gwinnett County DOT is also currently about to embark on a major reconfiguration of the
I-85/GA-316 interchange, which is located in the Gwinnett Place area. This project will significantly
improve the safety of merging traffic flows through the creation of collector-distributor slip lanes
along the outer edges of both roads. However, this project will also require southbound drivers
on I-85 to prepare to exit at Boggs road to get off at Pleasant Hill exit, 2 miles downstream. This
new configuration will necessitate finding new ways to announce the Gwinnett Place market area
to the pass-by traffic on I-85/GA-316. This can be done either through the creation of a visitor
center/cultural attraction to permit a GDOT sign on the interstate. This project will also prepare
Figure 6 Planned Transportation Improvements
17
the way for expanded, long-distance, high-capacity
transit in the study area by extending the HOV lane
network beyond its current terminus. A part of this
proposes a new HOV only ramp at Old Norcross
Road, which would directly serve the Gwinnett Place
area.
In order to accomplish many of the recommendations
of this study, a shift in the DOT’s focus to a more
balanced, multi-modal transportation system, as
well as, an accompanying shift in the transportation
policy model, as revealed in the Comprehensive
Transportation Plan (CTP), will be necessary. The
CTP, as it now stands, is focused on continuing the
development of the last remaining greenfields in
eastern and northern Gwinnett. Reinvestment
in older greyfield areas of the county, which are
experiencing the greatest decline will require different
types of transportation investments than have been
previously employed. An urban transportation
policy model will need to be implemented in these
areas if successful revitalization is to occur. The
suburban development model does not support the
population densities necessary to improve commercial
performance nor is it capable of supporting the kinds
of changes that will be necessary in order to attract
private sector investment back into the study area. All
infrastructure investments should be designed with the
goal of improving the attractiveness and visibility of the
Gwinnett Place market.
Recommendations
There are several central transportation issues related
to the redevelopment of the study area that need to
be addressed in order to balance the transportation
system so it can support the goals of the revitalization
task force. These recommendations are:
M1
CREATE MORE TRANSPORTATION
CONNECTIONS IN THE EXISTING NETWORK
• Extend the street network in and around the
mall in a grid pattern.
• Build new bridges across I-85 from Breckenridge
to Venture Drive at the Mall, and from Club
Drive to Liddell at Dave & Busters (Note: due
to regional funding priorities the BreckenridgeVenture bridge may not be competitive; see
next recommendation)
Bridges and overpasses can be used to enhance vehicular and pedestrian mobility.
18
Figure 7 Proposed Road Infrastructure
• Explore new mall-only access ramp under Pleasant Hill to connect to the new
Breckenridge-Venture Bridge (or Old Norcross) for northbound for I-85 traffic (Due to
the above funding constraints Old Norcross may be more competitive or a short-term
substitute)
• Connect dead-end stubs whenever possible.
• Create parallel facilities to the arterials
• Separate local and through traffic wherever possible
• Group curb cuts together by creating slip lanes along Pleasant Hill.
19
M2
SUPPORT ALTERNATIVE TRANSPORTATION
MODES
• Improve transit connections between the study
area and the Gwinnett Arena, local attractions,
and cultural facilities
• Improve the transit system
• Create a centralized and activated express/
local bus system transfer hub
• Plan for long range, high capacity transit
service in the study area
• Study the locations desirable and feasible for
a new multi-modal transit hub
Building placement, street trees, intersection treatment and street furnishings all contribute to a beautiful public realm.
20
ENHANCE PEDESTRIAN MOBILITY
• Improve walkability by creating adequate pedestrian infrastructure
• Build sidewalks throughout the study area starting with the major arterials
• Build attractive and safe crosswalks
• Provide for multi-use trails and connections to local greenspaces
• Construct pedestrian infrastructure at (and connecting to) bus stops.
Costs
Costs for the recommendations listed vary greatly in magnitude and depends on the possibility
for phasing construction over time versus concentrated outlays of capital and effort. The most
affordable and immediate improvements are the streetscape projects listed, including small
sidewalks and buffer plantings. The next most affordable type of improvements are the multi-use
trails and crosswalk improvements. Mass transit costs can be affordable if continued bus service
is offered or more expensive if a rail alternative is provided. It is important to note, however, that
the economic development opportunities differ greatly. Bus service will off a more limited series
of opportunities, while rail can provide for much greater quantity and quality of development.
Roadway construction can vary greatly but many of the improvements envisioned for this area
are major facility upgrades or brand new facilities, both of which are high cost. An estimate of
probable cost for transportation improvements is shown in Figure 8 on the following page.
M3
21
22
Promote Idea/Project in
Transportation (CTP)
Ronald Reagan/Club
Drive connection
Figure 8 Gwinnett Place Road Infrastructure Costs
Note: Short-Term Improvements are highlighted in Gray
Liddell-Club Drive
Connector
New 4 lanes
New 4 lane bridge
across I-85
2020
2020
2020
2005-2010
New connection widen
2 to 4 lanes
Feasibility Study
Liddell-Club Drive
Connector
2005-2010
HOV Ramps @ Old
Norcross
Feasibility Study
2005-2010
Feasibility Study
Intermodal Transit
Center (re)location
2005-2010
2020-2030
Bridge over I-85
(both sides)
2010-2020
Mall only slip lane from
I-85 NB
Sidewalk
Build/Fill in gaps in sidewalks
along All minor streets in study
area
(both sides)
2010-2020
Feasibility Study
Sidewalk
Fill in gaps in sidewalks along Old
Norcross Road
(both sides)
2005-2010
2005-2010
Sidewalk
Fill in gaps in sidewalks along
Breckenridge Blvd
(both sides)
2005-2010
2005-2030
Sidewalk
Satellite Blvd
(both sides)
2005-2010
Crosswalks
Sidewalk
Steve Reynolds Blvd
(both sides)
2005-2010
Signal Timing
Sidewalk
Build sidewalks along Pleasant
Hill Road
(both sides)
Improve Crosswalks throuthout
study area
Feasibility Study
Sidewalk
Build sidewalks along Pleasant
Hill Road
Planning Year
17,200,000
5,000,000
4,700,000
50,000
40,000
50,000
60,000
50,000
variable
variable
variable
variable
variable
variable
$225,000
$350,000
Est. Project Costs
Gwinnett Place Mall Revitalization Study
Type of Improvement
Description
Map Key
Pleasant Hill
Terminus
Liddell Rd
Satellite Blvd
NA
NA
Pleasant Hill Rd
NA
Venture Dr
NA
NA
Sweetwater
Club Dr
Steve Reynolds
Club Dr
I-85
I-85
From
Club Rd Liddell Drive
Connector
Club Drive
Shackleford Rd
NA
NA
Venture Dr
NA
Breckenridge Dr
NA
NA
Satellite
Old Norcross east
Old Norcross east
Pleasant Hill
Club Drive
Steve Reynolds Blvd
To
1.7
1.7
0.8
NA
NA
0.9
0.4
NA
NA
NA
1.2 (gaps variable)
2.5 (gaps variable)
2 (gaps variable)
1.9 (gaps variable)
0.9
1.4
Segment Length (miles)
Problem Statement
Current Gwinnett County policies related to
land use, zoning, and code enforcement, do not
support redevelopment and are detrimental
to the Gwinnett Place aesthetic, quality, and
image. In order to foster revitalization, it will be
necessary to strategically address existing policies
and develop new ones that serve to catalyze
as well as adopt pro-revitalization policies.
In essence, the County can make infill and
revitalization development not only a viable
option, but the preferred option.
Code Enforcement
In listening to stakeholders in community
workshops, it is clear that there are serious
lapses in the enforcement of existing codes
and ordinances. Some of the issues raised
included:
• the proliferation of temporary low
quality signs across the community
• excessive numbers of occupants in
residential uses
2. Objectives: Policy
CREATE POLICY
• a variety of unlicensed and intense
home business uses not allowed in
residential neighborhoods
Example of current retail development in the study area
revitalization and infill development. Without
policy change, the recommendations developed
for each of the three Pilot Studies will be difficult
if not impossible to implement. In particular, the
regulatory changes required to accommodate the
development of pedestrian friendly facilities and
an overall environment are of utmost importance
in creating a memorable place that is clearly
differentiated from numerous surrounding areas.
The real estate community is drawn to clearly
defined policy and an easily understood “set
of rules” for development. Having said that,
however, even with the regulatory playing
field leveled between greenfield and infill
development/ redevelopment, the developers will
still opt for a greenfield option simply because of
the ease of approval and typically the lower costs
of development. In order for Gwinnett County to
foster quality development and reverse decline in
key areas, it is essential to amend existing policies,
• excessive parking on properties
• non-operational and unused
vehicular parking in residential
neighborhoods.
In the words of one resident, “ the
Gwinnett Place area looks ‘like a flea
market’ on the weekends”. Recognizing
that County departments may be
Example of potential area for redevelopment
23
understaffed and not always able to keep up with
numerous violations, a revised enforcement policy
needs to be adopted that would allow for quicker and
better response.
Land Use Policy
The County’s 2020 Land Use Plan does not support
mixed-use development, which is considered a
fundamental component of smart growth. The Land
Use Plan does not contain a Mixed-Use classification
and only designates a limited degree of variation
in intensity and use. This is extremely detrimental
for areas struggling to revitalize because of the
inability to foster economically viable higher intensity
developments. This inflexibility of the current
classifications restricts redevelopment opportunities
by limiting new development to existing forms
and requiring a costly rezoning process. A new
Revitalization Area Land Use classification would allow
for the introduction of new market-supportable office,
retail and housing projects., and make responding to
changing market demand less costly.
Land Use classifications need not match or comply
with current on-the-ground uses, but should reflect
the desired long term vision. Under Georgia law,
the future land use plan serves as the legal basis
for rezoning activity on the part of the county. It is
important that the plan accurately reflects the desired
vision for an area. In this way, these classifications
should direct public infrastructure improvements that
support the desired future land use.
Example of struggling retail in the study area
24
Pleasant Hill South of I-85
Zoning Resolution
Current Gwinnett County zoning districts do not
allow the mixed-use, pedestrian oriented districts
and context sensitive road design necessary to
make revitalization happen. Amendments to the
Zoning Ordinance are desperately needed in order
to promote true mixed-use development. These
amendments will allow developers the flexibility to
meet the economic realities of revitalization and infill
development. Furthermore, the current ordinance
requires parcel by parcel rezoning process that is an
administrative burden to the county and difficult and
costly for applicants. Coordinated strategies for public
and private partnerships will need to be addressed in
order to foster quality development.
While existing zoning does provide for a Mixed-Use
Redevelopment Overlay District designation, the
constraints placed on development by this ordinance
are unsuitable for the revitalization strategies
outlined. Limitations placed on development are very
restrictive and allow only a narrow range of new
development. Issues include: what lands can qualify
for redevelopment, lot sizes, density / open space
calculations, the relationship between underlying
zoning and the proposed overlay, as well as the
perceived arbitrary nature of the document. It is
interesting to note that no projects have yet to result
in a true mixed use project as allowed under this
ordinance. At the time of this writing, there was one
pending project with this mixed use designation and its
initial plan was rejected.
Prepared by HOK, Robert Charles Lesser & Co., US Infrastructure, & URS,
Recommendations
P1 CODE ENFORCEMENT - POLICE
DEPARTMENT
• The County should give jurisdiction to
the Police Department to ticket for
code violations in areas designated as
Revitalization Districts. The intent is for
code enforcement to maintain its call
center and for police to ticket in the field.
• This would alleviate the processing and
enforcement “road-block” caused by
staff shortages and allow officers already
patrolling the area to take ownership of
these important issues.
P2 CODE ENFORCEMENT - COMMUNITY
BASED INITIATIVE
• The County should form a community
based initiative that empowers volunteers
to aid in the identification and ticketing of
code violations.
• Similar to a community watch program,
participants would volunteer to monitor
their neighborhoods and, following a
training and certification program, be
empowered to issue notices of violation.
New zoning would allow the development of street
oriented residential with ground floor retail.
• The proposed Revitalization Zoning
Districts (RZD) could be applied only
to properties within a designated
Revitalization Area.
P4 CREATE A REVITALIZATION ZONING
P3 CREATE A NEW “REVITALIZATION AREA”
LAND USE CLASSIFICATION
• Establish Revitalization Areas in the
County Comprehensive Plan for the
purpose of identifying specific areas that
will be targeted for revitalization.
• All adopted Revitalization Areas would
have their boundaries depicted on the
Future Land Use Map, which is included in
the Comprehensive Plan.
DISTRICT (RZD)
• A Revitalization Zoning District
(RZD) is proposed for the Gwinnett
Place Study Area.
• The new RZD development
regulations would provide the
incentives and design requirements
that are needed to attract quality
mixed-use development in declining
commercial areas.
25
The map below shows the study area boundary as well as the CID boundary. The study area boundary is based
on a 1 mile radius from the intersection of I-85 and Pleasant Hill. Any property that fell within that radius was
then included in the study area. The final CID boundary will not be set until it meets its two formation goals.
After meeting with several business owners, inital CID boundaries encompassed the entire “commercial Heart”
of the area on both sides of the Interstate. The boundaries were reduced based on “positive or negative” feeback
from the property owners.
Figure 9 Study Area Map
26
The categories in the RZD are based on the concept of the transect. This matrix, developed by
Duany Plater-Zyberk & Company, is an ecologically based classification tool used to outline the
scale, character and density of development appropriate for a range of conditions.
The proposed RZD regulations would provide the economic incentives and the design
requirements needed to attract quality development. Regulations would be comprehensive and
definitive, easy to understand and administer, and be flexible enough to address issues systemic
in activity centers County wide. The County could apply the RZD as needed to prevent or
reverse commercial and residential decline and create a healthy, reliable tax base.
Figure 10 Revitalization Zoning District Transect
27
The Revitalization Zoning District Matrix
The proposed Revitalization District is needed to implement
the revitalization goals specific to each study area. It would
consist of a set of six (6) new zoning districts in the Gwinnett
Zoning Code, analogous to transect zones T1-T6. The six
districts provide a range of development options from
protected parks and preserves to mixed-use town centers
as follows: RD – 1 Parks and Preserves, RD – 2 Rural, RD-3
Suburban Residential, RD-4 Neighborhood Mixed-Use, RD-5
Town Center, and RD-6 Regional Center. The revitalization codes
differ significantly from existing zoning, in that property owners
would be given a broader range of residential/commercial
mixed-use development options. New requirements would
improve the visual and pedestrian quality of the street, such as
adequate sidewalks and street trees, and requiring buildings to
be located on the public sidewalk with parking to the side or
rear on commercial sites. Such increased development options
and requirements have been shown to improve property values,
encourage quality development and nurture stable, quality
residential neighborhoods and sustain vital retail districts.
The Gwinnett Place Study area will be classified
as a RD-6 Regional Center that serves as hub of
activity for the county at large and surrounding
neighborhoods.
Figure 11 Revitalization Zoning District Matrix
28
Urban Village
Urban Garden
15-25 units per acre
.75- .90 Floor Area Ratio
1 parking space per bedroom
1-1.3 Floor Area Ratio
3-story Podium
Urban Wrap
2-3 Floor Area Ratio
3-4.5 Floor Area Ratio
URBAN RESIDENTIAL TYPOLOGIES
The examples below are intended to illustrate the physical characteristics of different residential
densities. In the proposed matrix, RZD-6 calls for up to 60 units per acre, meaning that each of
these building types could be present at Gwinnett Place.
29
P5 SUPPORT THE CREATING OF THE GWINNETT
PLACE COMMUNITY IMPROVEMENT DISTRICT
• A group of local business leaders, with
the support of the Gwinnett Chamber of
Commerce, are in the process of establishing
the Counties second Community Improvement
District (CID). It is the recommendation of this
team that the County support the formation of
this group.
• Revitalization activities can not and will not occur
without the combined effort of the public and
private sector. As seen in other Metro Atlanta
areas and across the nation, only through a true
partnership can government and the private
sector generate the political will and ultimately
the funding to allow necessary enhancement
projects to occur. The CID is the public sector
vehicle to allow for this to happen.
• The CID is critical to revitalization and the long
term health of the community
P6 ESTABLISH A STRONG IMAGE / IDENTITY &
BRANDING STRATEGY FOR THE AREA
• It will be important to establish a broad based
repositioning and branding strategy for Gwinnett
Place to tell a new story, build excitement and
to change negative perceptions. Naming should
be a key piece of the strategy. This would be
supported through physical elements such as
signage and banners as well as through the
marketing, media and public relations campaigns
organized and lead by the Gwinnett Place CID.
• We recommend calling the entire Revitalization
Area “Gwinnett Place.” This would reference
directly to the mall and give a broad base for
naming options.
• A comprehensive naming strategy would also
create synergy and connection between existing
and new sites. Examples include: “The Prado
@ Gwinnett Place”, “Mall Corners @ Gwinnett
Place”, “The Village @ Gwinnett Place” etc.
Example of using signage to enhance the sense of place
being established through policy change.
30
• To address the issue of freeway identity,
especially in light of the new GDOT I-85 / 316
interchange improvements, Venture Drive should
be renamed Gwinnett Place Drive to allow
for an Interstate Sign. This would also provide
a direct link back to the mall and its new front
door.
Problem Statement
The Gwinnett Place Mall area is at a critical
crossroads, with one direction - business as usual
- most likely to result in continued decline, and
the other direction offering real potential for
revitalization. Despite being in the direct path of
executive housing growth in a metro area that
is expected to add nearly 1.5 million jobs over
the next twenty-five years, Gwinnett Place is at a
competitive disadvantage to capture new office
demand. Choked with traffic and lacking design
controls that create an aesthetically appealing
environment sufficient to compete amongst
new alternatives, the GPM area is handicapped
in its ability to compete for new office-oriented
Example of available office space in the study area
growth. Given the lack of undeveloped land in
the study area on which to develop new office
space, and the fact that redevelopment or infill is far more difficult than greenfield development, it
is clear that without a proactive strategy to bring commercial office development to this location,
corporate users, and therefore the best paying jobs, will pass by the study area opting for areas
that are “clean and green”. As a result, the area will continue to decline.
2.Objectives: Job Growth
CAPTURE JOB GROWTH
Although the area is over-supplied with commercial retail space, the potential for capturing new
commercial office space demand is substantial. Creating an environment suitable for capturing
new office development (and therefore jobs) is the critical piece of the redevelopment strategy.
• Office is the most effective and fiscally appealing land use to replace struggling retail.
• Office workers create demand to support retail space, strengthening the retail market.
• They provide a captive audience to support additional housing, particularly owner-occupied
housing that helps improve the ratio of renters to owners in the area.
Without a commercial office and jobs-based strategy, there is a risk for the balance of the
redevelopment strategy becoming a “house of cards.” For example:
• Redeveloping retail in a way that is beneficial to the County tax digest is far more difficult
without office.
• Attracting owner households to the area is likely much harder.
• Drawing upscale retail tenants becomes more challenging – in fact retail decline is more
likely.
31
• Without additional household expenditures and
workers’ daytime expenditures, it is very difficult
to positively influence demand for retail in an
area that is currently oversupplied.
Successfully attracting office is the key to setting the
overall redevelopment of the Gwinnett Place Mall
study area into motion. Therefore, Gwinnett County
must aggressively pursue office development and large
users to the area. From a planning and development
perspective there must be a catalytic project, in the
near term that can demonstrate the potential for
development in this area.
Context for Office Development Opportunity
Employment growth in the Atlanta Metropolitan
Statistical Area (MSA ) has largely occurred in the
MSA’s “favored quarter.” The favored quarter is
defined as that radiating quarter of an MSA where the
bulk of the executive housing and white collar jobs
Examples of office within the study area
32
locate, and the largest portion of new housing growth,
both executive and more affordable, is developed.
Atlanta’s favored quarter, shown on the map on the
following page, largely equates to the locally-named
Golden Triangle, the area north of Downtown
between I-75 and I-85 and anchored by Georgia 400
and the Chattahoochee River. Between 1990 and
2000, nearly 80% of the region’s job growth occurred
within the favored quarter. Although an increasing
amount of growth has located in areas outside of the
favored quarter in the last few years, the large majority
of growth will continue to move up I-75, I-85 and
Georgia 400, with clustering of office development in
the metro cores.
Metro cores are concentrations of employment
and regional activity and have evolved as the metro
area continues to grow. Atlanta’s largest urban
cores include Downtown, Midtown, Buckhead,
Central Perimeter and Cumberland-Galleria. These
latter three cores are examples of 3rd generation
cores, cores that were largely founded in the 1970s
and evolved into major employment and activity
concentrations in the 1990s. These cores, which
dominated office growth in the 1980s, have since seen
gradual decline in their capture of new office and retail
demand, losing share to newer 4th generation cores
located even further out. The strongest example of
a 4th generation core in Atlanta is the Georgia 400
North corridor in North Fulton, which accounted
for close to half of the region’s office growth in
the late 1990’s and 2000’s. The other two major
4th generation cores are Town Center on I-75 and
Gwinnett Place Mall. Mature 3rd Generation cores
are losing ground to these newer cores in part due to
significant traffic congestion along the major freeways
feeding the cores. As the economy recovers and we
begin to enjoy real job growth, it will likely be the 4th
generation cores that are best positioned to capture
growth. They are closest to many executives’ homes
and are more affordable than the more mature, earlier
generation cores. (See Figure 12 on pg. 33) Just as
metro cores have continued to push outward, along
with suburban housing growth, there are a number
of factors that are likely to similarly influence our
Prepared by HOK, Robert Charles Lesser & Co., US Infrastructure, and URS
Figure 12 Favored Quarter Diagram
urban form over the next several decades, but with different results. For example, our underlying
economy is changing – the shift from an industrial economy to a knowledge economy impacts
the types of environments we will need to create. Our county boundaries were originally
designed to serve an agricultural economy, so no farm was more than a wagon ride away from
the county seat. Since then we have lived through the industrial economy where separation
of land uses was the guiding planning principle. In the industrial economy we traded quality of
life and environmental protection for economic benefit and to a certain degree unsustainable
development practices resulted in economic growth. Now, in the early stages of the knowledge
economy, knowledge workers have greater discretion about where to locate themselves and
their companies, and tend to choose high quality of life environments when making those
decisions. Quality of life will play a major role in determining which companies want to relocate
to, or remain in the Atlanta region. These same issues will influence their decisions on where in
Atlanta they want to be. Quality of the environment will play a critical role in whether or not
companies decide to locate in Gwinnett Place Mall.
Employment Situation
New jobs are the driver for office demand and from that perspective; Gwinnett Place Mall is in a
very good position. Emerging from consecutive years of job loss, the Atlanta MSA is expected to
enjoy 60,000 plus net new jobs over the coming three years.
33
0.5
0.45
43%
0.4
35%
Percent of Households
0.35
0.3
25%
0.25
24%
22%
19%
0.2
0.15
10%
0.1
10%
9%
0.05
2%
1%
0%
0
Gwinnett Place Mall 1/
Cumberland Galleria 2/
Lenox 3/
Town Center 4/
1990 FIRE
Central Perimeter 5/
North Point 6/
2000 FIRE
Figure 13 F.I.R.E. Chart
As this redevelopment plan is not likely to come into
fruition during this time period, it is important to
consider the long-term economic forecasts for the
Atlanta region. The Atlanta Regional Commission
(ARC) is anticipating 1.5 million net new jobs over
the next 25 years. Only a portion of these jobs will
locate in office space and there is certainly a risk of
these projections being aggressive. The Atlanta region
is threatened by traffic congestions, air quality, regional
water wars and other quality of life considerations
which, if not adequately addressed, could threaten
this rate of growth. The redevelopment of Gwinnett
Place Mall into a mixed-use metro core exemplifies
the types of strategies required to combat these
challenges. Putting people closer to where they work,
creating more walkable communities and developing
cores at a density that will one day support transit are
key to creating a more sustainable Atlanta region, one
that can add, on average, 60,000 net new jobs annually.
Employment growth in Gwinnett County has been
strong over the past decade, averaging more than
10,000 net new jobs per year over the past seven
34
years. Office-oriented employment growth in the
areas surrounding GPM has also been significant. Over
the past three years, the Northwest/ I-85 corridor
has captured more than three times its “fair share” of
office absorption (representing under 10% of current
space compared to 32% of absorption). Although the
past few years have been somewhat atypical of metro
office trends, this nevertheless suggests very strong
momentum for future office development. While
most areas were losing occupied space, the northeast
corridor was gaining.
Employment in the Gwinnett Place Mall study area
(defined as census tracts 505.17 and 502.07.) has
grown over 173% from 1990 to 2000 according to
ARC employment growth data. Office sector, F.I.R.E.
(finance, insurance and real estate) jobs in the GPM
study area increased 47% from 3,532 jobs in 1990 to
5,176 jobs during the same period. Historically, we
have had a lower concentration of office-using jobs as
compared to other metro cores. The chart on page
34 illustrates the concentration of F.I.R.E. (finance,
insurance and real estate) jobs in GPM relative to
other suburban metro cores.
10
2%
0
-10
0%
-23
-20
Employment Growth
2006 (F)
2005 (F)
2003
2004 (F)
2002
2001
2000
1999
1998
1997
1996
1995
1994
1993
-2%
1992
1990
1989
1988
1987
1986
1985
1984
1983
1982
1981
1980
1991
-22
-40
Percent Growth
Figure 14 GSU Employment Projections
Local Office Market Conditions
The local office market currently suggests some
near term potential for new demand but is
more indicative of what is possible in today’s
market, given limited employment growth and
a challenged environment. The Gwinnett Place
Mall study area falls in the northeast office
market as defined by CoStar Group’s Jamison
File. Consisting of over 14 million square feet,
the northeast office market is one of the fastest
growing in Atlanta. Over the last 5 years, the
northeast market corridor accounted for
32% of all metro Atlanta office absorption,
approximately 500,000 per year, representing
over three times its fair share.
Within the GPM study area today there is
currently 2.5 million square feet of usable office
space and approximately 565,000 square feet
planned for construction. This accounts for
approximately 20% of all the office space in the
northeast market and 44% of all space in the
Duluth/ Suwannee/ Buford sub-market. Most
of the existing office buildings were constructed
between 1990 and 2000. Current lease rates
range from $14.75 to $21.50 per square foot
in the GPM area and average lease rates are
52
31
4%
Percent Growth in Employment
63
84
86
83
56
6%
43
11
20
8%
32
31
34
48
49
56
60
63
60
40
84
86
98
96
79
80
27
Number Change in Employment (000's)
100
approximately $17.00 per square foot,
compared to average lease rates in the
northeast market of $16.50 and $16.97 in
the Duluth/ Suwannee sub-market. Overall
vacancy in the GPM study area is currently
at 13%, which is well below the 23%
vacancy in the metro Atlanta office market,
the 21% in the northeast market and
Gwinnett County’s 29% vacancy rate.
Satellite Place is the largest business park in
the GPM area with 11 buildings and over
947,734 square feet of usable space. Over
40% of the area’s current overall vacancy
occurs in Satellite Place; one of the eleven
buildings is vacant producing 132,000 square
feet of available space.
Class A office space in the GPM study
area is well positioned and has performed
well in comparison to the metro Atlanta
market and northeast sub-market. Current
GPM class A vacancy is approximately 10%;
corresponding class A vacancy in metro
Atlanta and the northeast sub-market are
25% and 22% respectively. Vacancy is lower
in the GPM study area while average Class
35
A lease rates, currently at $19.17 per square foot, are
also lower than average metro Atlanta lease rates of
$20.82 per square foot and slightly higher than the
$18.69 per square foot lease rates in the northeast
sub-market market. Overall office market performance
in the GPM study area over the past five years
remained strong and steady while historically stronger
neighboring markets experienced increasing vacancy
rates, slowly declining lease rates and decreased annual
absorption. Current market performance coupled
with projected ARC office sector employment growth
over the next 25 years are clear indications that the
GPM office market is well positioned to experience
continued positive growth.
Recommendations
In order to capitalize on the emerging trends of real
estate and continue its rate of employment growth,
Gwinnett Place must position itself to compete with
nearby cores that are currently much more appealing
in that they are easier to develop and aesthetically
more attractive. These issues are discussed more fully
in the mobility and urban design standards chapters.
In order to quantify the extent to which Gwinnett
Place may be able to capitalize on these trends,
we conducted a statistical demand analysis taking
into consideration regional job growth, directions
of growth, the northeast corridor’s capture of the
growth and the ability of GPM to compete within the
northeast sub-market. The result is demand potential
for over 4 million square feet over the next 25 years.
(See Figure 15 on pg. 37)
J1
PLAN FOR SHORT AND LONG TERM OFFICE
GROWTH
• The plan should provide for over four (4) million
square feet of additional high quality office
development over the next three decades.
• The Atlanta Regional Commission (ARC)
projects Metro Atlanta will add 1.5 million net
new jobs in over the next 25 years. Taking
36
The addition of office to the study area will give Gwinnett Place
a foundation for the rest of its revitalization efforts.
13- County Atlanta Area Total
2005 - 2010
2010 - 2015
2015 - 2020
2020 - 2025
2025 - 2030
TOTAL
2005 - 2010
2010 - 2015
2015 - 2020
2020 - 2025
2025 - 2030
TOTAL
14,729,225
18,017,928
24,005,876
27,226,168
21,873,711
83,979,196
NE Submarket Capture
23%
23%
23%
23%
23%
3,424,545
4,189,168
5,581,366
6,330,084
5,085,638
24,610,801
• Assuming current capture rates for
Duluth/Suwanee Area Anticipated Capture
both the Duluth/Suwanee sub-market’s
2005 - 2010
40%
1,369,818
capture of northeast growth (40%) and 2010 - 2015
40%
1,675,667
2015 - 2020
40%
2,232,546
the study area’s capture of the Duluth/
2020 - 2025
40%
2,532,034
Suwanee sub-market (44%), up to
2025 - 2030
40%
2,034,255
TOTAL
9,844,320
17,000 of these jobs and over 4 million
square feet of the new office space
GPM TOTAL Potential Capture
(assumes aggressive and proactive strategy)
could be captured in the study area.
2005 - 2010
44%
602,720
This creates approximately 600 new
2010 - 2015
44%
737,294
jobs annually leading to an absorption
2015 - 2020
44%
982,320
2020 - 2025
44%
1,114,095
of between 125,000 and 225,000
2025 - 2030
44%
895,072
square feet of new office space per year. TOTAL
4,331,501
Est. Total New Workers
17,326
This strong growth potential assumes
Figure
15
Chart
showing
the
time
frame
&
established
capGwinnett County has taken steps
ture rate for Multi-story Office Development
to correct the traffic congestion and
continues to improve the general aesthetics of the study area.
into account both historic and recent
absorptions for the northeast submarket and assuming an aggressive and
proactive strategy to attract growth in
the corridor, it is predicted to attract
approximately 23% of all Metro
Atlanta job growth. This results into
75,000 office-using jobs, translating into
approximately 4 million or more square
feet of office space by 2030.
• Because of the lack of undeveloped land, encourage re-development of existing parcels.
Mixed-use zoning will allow developers to redevelop struggling retail into more vibrant
centers, including a significant office component.
• If there is not much pro-active involvement, the study area could easily lose these new
jobs to greenfield developments such as Huntcrest. These sites can be used for office
development to capture the over 1.5 million new jobs coming to Metro Atlanta in the next
25 years, transforming Gwinnett Place mall area into an urban core.
J2
GIVE DEVELOPERS NEEDED INCENTIVES TO HELP REPOSITION UNDER-PERFORMING
RETAIL
As part of the policy objective the county needs to actively work with the private sector to
encourage development and attract new jobs.
37
J3
BEGIN WORK ON A PROJECT FROM A PLANNING
AND DEVELOPMENT PERSPECTIVE THAT CAN
DEMONSTRATE THE POTENTIAL FOR NEW
OFFICE IN THE AREA
An early win should be identified to illustrate
the potential for office development and set the
precedent for the future.
J4
WORK WITH THE CHAMBER TO AGGRESSIVELY
PURSUE A MAJOR TENANT
As part of a major campaign, the key stakeholders,
Gwinnett Place CID, and the chamber should identify
and pursue candidates.
J5 ENSURE ADEQUATE INFRASTRUCTURE TO
SUPPORT OFFICE GROWTH
The mobility improvements will be key to attracting
major tenants to this area.
Costs
The fiscal impacts of replacing struggling retail with
office are discussed in the following chapter.
38
Problem Statement
Based upon local population, employment
base, and potential regional shoppers, there
is simply too much retail space located within
the Gwinnett Place study area relative to what
can be supported. The introduction of new
retail further north on I-85 has significantly cut
into Gwinnett Place Mall’s (GPM) trade area,
diminishing the opportunity for regional retail
such as the mall itself and big box stores. A
plethora of competition and insufficient demand
have led many retail centers in the area to
Example of vacant retail space within the study area
either struggle or fail. With supply and demand
conditions out of balance, the redevelopment
strategy must find a way to positively influence demand (introduce more housing and/or workers)
and supply (removing under-performing retail). Proactively addressing this situation will protect
and enhance Gwinnett’s tax digest.
2. Objectives: Retail
PRUNE UNDER-PERFORMING RETAIL
The Gwinnett Place Mall study area is gorged with over 4.3 million square feet of retail space
within a one mile radius. The over-supply of retail in this small characterless area, combined
with the infringement of overlapping trade areas of newer nearby malls has led to high (over
20%) vacancies in the face of declining rents. These vacancies are nearly double the Northeast
Gwinnett sub-market, which averages 10.4% overall. Many of the vacancies are associated with
AVERAGE SALES PER SQUARE FOOT
$250
$221
$200
$197
$137
$150
$136
$100
$50
$0
U.S.
State of Georgia Gwinnett County
Gwinnett Place
Mall Study Area
Figure 16 Average retail sales per square foot
39
GWINNETT
PLACE MALL
Figure 17 Trade Map
larger, anchor tenants who have relocated in some
cases to other sites within the study area. Many of
the centers that are experiencing high vacancies are
poorly maintained, older, increasingly obsolete facilities.
Indicative of increasing vacancies, retail sales per
square foot have fallen dramatically, averaging below
$140 per square foot (compared to the Georgia
median of $197). As illustrated in Figure 16 on pg.
39, the study area’s sales per square foot numbers fall
below the state and the nation, indicative of oversupply.
When looking at the supply and demand situation in
the study area, it is clear that the area is oversupplied.
When it first opened in 1984, Gwinnett Place Mall
and the surrounding retail were able to attract
shoppers from a large area. With the addition of new
regional malls including Mall of Georgia, Northpoint,
and Discover Mills, the trade area has been severely
sliced. The graphic above shows 8-mile trade areas
for the regions’ malls, illustrating the severity of the
competition and diminishing support for retail at this
location. (See Figure 17 above)
40
Based on household expenditures, the study area is
currently able to support just over 2 million square
feet of regional serving retail , whereas currently there
is around 3.5 million square feet of regional retail
inventory. The result is demand, or retail expenditures,
being spread across too much space and too many
stores, which results in below average sales per square
foot for the retailers. The laws of supply and demand
tell us that when there is too much of something (in
this case retail) relative to demand, it becomes less
valuable. The excess retail in the study area is making
it difficult for the retailers to thrive, thereby driving
down property values.
Declining property values would have a negative
effect on the amount of taxes the county receives.
By “pruning” away some of the existing retail space
and allowing for redevelopment, two things can
happen. First, by reducing the amount of retail in the
area, it allows for less competition among retailers.
This will have a positive affect on sales per square
foot for the remaining retailers, pushing land values
and in turn tax collections higher at those locations.
In addition, the county benefits from additional tax
collections on the redevelopment sites. Bottom
line, the county walks away with more revenues
Shopping center owners and tenants find themselves in a situation where they are experiencing
positive cash flow and therefore can maintain their businesses but do not have the resources
to redevelop their properties when they fall into decline. Moreover, the positive cash flow
outweighs the cost associated with demolition in order to redevelop as an alternative land use so
without some form of incentive or outside intervention, the land use will remain as deteriorating
retail. Many centers in the study area are in the latter phases of the retail life cycle and are
suffering from disinvestment. This retail life cycle is illustrated on the chart below. (See Figure 18
below)
while Gwinnett Place benefits from redevelopment. Based on proprietary models, looking five
years out, approximately one million square feet of retail could be “pruned” away from the
Gwinnett Place study area. Once the market stabilizes (meaning sales per square foot rises
for the remaining retailers), county tax collections become equal. As the redevelopment sites
transition to different uses, the county will benefit from additional tax revenues.
Among the retail centers that are performing the best are those that are located along Pleasant
Hill past Satellite Boulevard. Pleasant Hill Square Shopping Center is the newest center in
the area, built in 1998, and enjoying success, with a vacancy of 2%. Gwinnett MarketFair is also
performing very well (100% leased), and although older, has retained strong tenants including;
30
25
Value
20
15
10
5
0
0
5
10
15
20
25
Time (Years)
Conventional Development
Progressive, Sustainable Development
Figure 18 Graph of Retail Life Cycle
Marshalls, T.J.Maxx, and Bed, Bath & Beyond. Unfortunately, many centers are struggling with
many large, vacant spaces, including the Macy’s at Gwinnett Place Mall, the old Wal-mart space
at Pleasant Hill Plaza, and the Prado. There are simply not enough retail expenditures and
therefore tenants to go around. These centers, suffering from high vacancies, declining rents
and disinvestment become the most ripe for “pruning.” “Pruning” can be challenging and
often requires actively engaging the property owners to find a mutually beneficial solution. In
other areas within metro Atlanta, retail centers are being redeveloped because retail no longer
represents the highest and best use. Acres Mill in Cumberland-Galleria and Lindbergh Plaza in
41
Atlanta both represent situations where the retail centers have aged while the overall real estate market has evolved
to support greater intensity on the land. Financially, it no longer makes sense for the centers to operate as shopping
centers alone and there is a higher and better use for them as a mixed-use or higher density development. Longer
term, this will likely be true for Gwinnett Place. In the near term, however, proactive strategies are required to help
bring the retail market back into balance.
Figure 19 Map or areas where retail would be pruned within the study area
42
R1
PRUNE AWAY UNDER-PERFORMING RETAIL.
Over the next ten years, unsupportable and obsolete retail should be removed, and as new
demand generators dictate (additional office employment, new ownership housing, etc.) over
time, replaced with roughly the same amount of higher value retail space.
Three strategies that may be employed to encourage redevelopment are:
R2
FOSTER PUBLIC / PRIVATE PARTNERSHIP OR JOINT VENTURE
• If there were an opportunity for government offices or some other County facilities to
move to a new location they could provide an anchor for the redeveloped site and help
offset some of the infrastructure costs. One key infrastructure cost is parking. If a public
entity can pay for structured parking (should it be required) there is a tremendous value to
the private developer.
R3
Recommendations
ALLOW FOR GREATER INTENSITY
• Through the Revitalization Zoning Districts (RZD) outlined in the next chapter, the County
could provide a “carrot” for the land owner to redevelop the site or for the owner to sell
to another interested party. Zoning that allows for higher density and a mix of uses makes
the property more valuable redeveloped than as a deteriorating strip mall. This strategy
would require some advertising of the opportunity available to developers.
The Prado is a prime candidate for redevelopment
Former major retailers in the study area have transitioned
to other uses.
43
• This is likely the most appropriate and feasible within the study area. The County could allow greater density
on identified properties to allow them to convert to mixed-use development. In particular, there is market
support for additional residential development in the area but in order to convert a commercial property
to residential and make financial sense, it has to be developed at a density that is comparatively high to that
which has been developed in the area to date (density recommendations are @ 50-60 units / acre and
outlined in the RZD matrix in the Urban Design Objective). An overview financial analysis of shopping
centers in the study area suggests that the sites could be purchased at a fair market value, given the current
commercial use, and converted to purely residential if residential could be developed at a density of a
minimum of 30 to 40 units to the acre. The density is important to allow a developer to deliver product
that would be the affordable for the market audience, given their incomes and allow current renters to
become owners.
R4
ENTICE MIXED-USE DEVELOPMENT
• Entice developers to redevelop waning retail centers with high-density, mixed-use projects consisting of a
combination residential, retail, and most important, office.
In the coming 5 to 10 years, we recommend that approximately 750,000 square feet of space be pruned away,
replacing this space with office development and mixed-use development. Currently in the study area there
are several sites identified in the Vision Plan that could potentially make good candidates for redevelopment.
A result of the Rich’s-Macy’s merger, Gwinnett Place Mall lost one of its lead tenants when Macy’s vacated its
approximately 300,000 square foot space last year. With four anchor tenants already located at the mall, it is
unlikely the mall will attract a fifth and therefore an opportunity exists to redevelop this space. Another parcel
ripe for redevelopment is Gwinnett Prado. After Kroger vacates later this year, the majority of the 300,000 square
feet at the Prado will be vacant. With Super Wal-Mart locating just north of the study area, Wal-Mart closed its
store at Pleasant Hill Plaza. Assuming a new tenant has not been landed, a large percentage of Pleasant Hill Plaza
Replacing existing single use centers with street oriented mixed-use will transform Gwinnett Place into the place
to be.
44
5,000,000
4,000,000
3,000,000
2,000,000
1,000,000
(1,000,000)
2003
2008
Retail Supply
2013
Retail Demand
2018
2023
2028
Over/(Under) supply
REGIONAL RETAIL SUPLLY/DEMAND
Figure 20 Retail Supply/Demand Chart
will remain vacant. In addition to the vacancy is the
aesthetics of the center, which have not been updated
since built in 1990. The total gross-leasable area of the
three sites mentioned above is a combined 800,000
square feet of near-empty retail space, of whose land
could be utilized by redevelopment.
Although the study area is over-supplied with regional
serving retail space, the area is more balanced in
terms of locally serving neighborhood space. That
being said, much of the space is in undesirable
locations or configurations and the area as whole
lacks “Main Street”, pedestrian oriented retail. The
Vision Plan calls for approximately 7,000 new housing
units and office space catering to over 15,000 daytime
employees, the two major drivers of neighborhood
serving retail. So although there is not a statistical
need for more retail space, there is a need and there
would likely be support for new retail formats.
Finally, based on the build-out of the study area with
office and retail, Gwinnett Place Mall area can rebuild
to its current levels of retail over the next 25 years.
Assuming the additional residents and workers, by
2020, we will be able to have returned to the current
level of retail.
45
46

Gwinnett Place Mall Pilot Study

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