Infill Development: Completing the Community Fabric
Contents
- Introduction
- Authority, Statutes
- Guidebooks
- Articles, Reports, Briefs, Fact Sheets
- Barriers to Infill Development
- Infill Development Plans, Programs & Strategies
- Ordinances
- Incentives to Facilitate Infill Development
- Funding Resources, Costs
- Design for Infill Compatibility
- Special Types of Infill Housing
- Illustrative Examples, Case Studies
- Infill Studies
- Brownfields & Brownfield Development
- Infill vs. Greenfield Infrastructure Costs
Introduction
Communities across the country are increasingly recognizing that the spread out patterns of growth, which have shaped American communities for the past several decades, cannot be sustained. Problems of increased traffic congestion, overstretched public facilities and increased infrastructure costs, loss of open space and other valued community resources, and even reduced physical activity and community health are typically associated with such patterns. Instead, an increased emphasis on developing passed-over parcels within developed areas, and on maximizing use of existing public facilities is needed. Many Washington communities have adopted urban growth boundaries that restrict the amount of land outside of urban centers that is available for urban development. The reduced land supply has created new interest in infill development opportunities in central and suburban cities alike.
Infill development is the process of developing vacant or under-used parcels within existing urban areas that are already largely developed. Most communities have significant vacant land within city limits, which, for various reasons, has been passed over in the normal course of urbanization. Ideally, infill development involves more than the piecemeal development of individual lots. Instead, a successful infill development program should focus on the job of crafting complete, well-functioning neighborhoods. Successful infill development is characterized by overall residential densities high enough to support improved transportation choices as well as a wider variety of convenience services and amenities. It can return cultural, social, recreational and entertainment opportunities, gathering places, and vitality to older centers and neighborhoods. Attention to design of infill development is essential to ensure that the new development fits the existing context, and gains neighborhood acceptance. A cooperative partnership between government, the development community, financial institutions, non-profit organizations, neighborhood organizations and other resources is essential to achieve infill success. In the long view, the public and private costs of continuing to favor sprawl development patterns will far exceed the resources needed now to facilitate infill development.
Authority, Statutes
- Ch 36.70A, RCW - The Growth Management Act.
- RCW 43.21C.299 Infill development - categorical exemptions from chapter (SEPA).
- Ch. 35.100, RCW - Downtown and neighborhood commercial districts (sales and use tax increment financing).
Guidebooks
- Infill Development - Strategies for Shaping Livable Neighborhoods, Susan C. Enger, MRSC Report No. 38, June 1997 - and Appendices.
- The Infill and Redevelopment Code Handbook, Transportation and Growth Management Program, Oregon Department of Transportation, Oregon Department of Land Conservation and Development, September 1999.
- Managing Maryland's Growth: Models and Guidelines for Infill Development, 2001.
- Strategies for Successful Infill Development, Northeast Midwest Institute, Congress for the New Urbanism, 2001.
- Building Livable Communities: A Policymaker's Guide to Infill Development, The Center for Livable Communities, Local Government Commission, Sacramento, CA, August 1995 (available for purchase).
- Smart Infill: Creating More Livable Communities in the Bay Area - A Guide for Bay Area Leaders, Stephen Wheeler, Greenbelt Alliance, San Francisco Bay Area, 2002 - or download.
- Smart Choices - Small-Scale Ground Oriented Residential Infill, city of Edmonton, Canada.
Articles, Reports, Briefs, Fact Sheets
- "Chapter 4: Reuse and Infill," Urban Planning Tools for Quality Growth, Envision Utah, 2000 - Good overview discussion including information about estimating reuse potential and costs.
- Filling in the Spaces: Ten Essentials for Successful Urban Infill Housing, The Housing Partnership, 2003.
- Best Practices to Encourage Infill Development, Prepared by Robinson & Cole for National Association of Realtors, December 2002.
- Patching the Fabric of the Neighborhood: The Practical Challenges of Infill Housing Development for CDCs, Emily Felt, Joint Center for Housing Studies, Harvard University, April 2007 - Report covers method for estimating infill potential, market considerations, infill housing typologies and other useful information.
- Housing Migrates Back to Cities: An EPA report finds exurbs are losing market share while downtown corridors are making a comeback, Jenny Sullivan, Builder, Posted March 19, 2009.
- Residential Construction Trends in America's Metropolitan Regions, U.S. Environmental Protection Agency, EPA Report EPA 231–R-08-001, January 2009.
- Infill in the marketplace: alternatives to sprawl, by Tom Sargent, On The Ground, Fall 1994 - Developer economics, Incentives.
- Accommodating Growth Through Infill Development, Washington Research Council, 2001.
- Filling in the Blanks, Michelle Lerner, Real Estate Portfolio - July/August 2002.
- Refill Fort Collins: Overcoming Challenges to Redevelopment and Infill, Final Report - Challenges and recommendations for encouraging infill and redevelopment in Ft. Collins through the creative recycling of vacant and underutilized land, 2006.
- Stimulating Infill and Brownfield Development in the Land-of-Sky Region, Prepared by Linda
Giltz for Land-of-Sky Regional Council, Asheville, NC, August 2007 – Overcoming barriers to infill development. - Fixing It First: Targeting Infrastructure Investments to Improve State Economies and Invigorate Existing Communities, National Governor's Association Center for Best Practices, 2004.
Barriers to Infill Development
If communities are to succeed in promoting infill development, they will need to recognize and overcome impediments to such development. Neighborhood opposition, financing challenges, inflexible building code and development regulations, lengthy permit processes, substandard infrastructure, difficult land assembly, site contamination and other conditions may need to be addressed to attract infill development
- Infill Development in the San Francisco Bay Area: Current Obstacles and Responses, Stephen M. Wheeler, Ph.D., AICP, Department of City and Regional Planning, University of California at Berkeley, A Paper Presented at the Annual Conference of the Association of Collegiate Schools of Planning, Cleveland, Ohio, November 2001.
- The Barriers to Using Urban Infill Development to Achieve Smart Growth, J. Terrence Farris, Housing Policy Debate, Vol. 12, Issue 1, Fannie Mae Foundation, 2001 - Summary, and Comment on J. Terrence Farris's The Barriers to Using Urban Infill Development to Achieve Smart Growth, William H. Hudnut, III, Housing Policy Debate, Vol. 12, Issue 1, Fannie Mae Foundation, 2001.
- Barriers to Infill Development, South Florida Regional Planning Council & Florida Department of Community Affairs, 1997 – Brief overview.
Infill Development Plans, Programs, Strategies & Tools
- Infill Development Plan, Southern Nevada Regional Planning Coalition.
- Florida Planning Toolbox: Infill and Redevelopment Tools – Very interesting set of tools and resources, illustrated with examples.
- Toolkit of Best Practices - Infill Development Program, Georgia Quality Growth Partnership (Scroll down for guides and model codes).
- Portland OR, Infill Design Program.
- Infill Program, Lake Oswego, OR.
- Infill Strategy, Sacramento, CA (including financial incentives, streamlined procedure, flexible standards and target infill areas) May 14, 2002.
- Infill Program, Sacramento, CA, and Sacramento (CA) City Infill Sponsored House Plans - Pre-approved house plans to facilitate infill development.
Residential Infill Strategy, Riverside, CA, Revised - June 17, 2003, and Riverside Infill Parcels. - Infill housing: be a "good neighbor", Burnaby, B.C., Canada - Guidance for limiting impacts of infill construction on neighbors.
- Request for Proposals, Solicitation Number RFP - MRA-04-02, Trumbull Village Infill Housing Project, Albuquerque, NM - Albuquerque looks for creative, capable infill developers for infill sites.
Ordinances
- Oregon, Model Infill Ordinance,Transportation and Growth Management Program.
- Maryland, Ch. V: Model Infill Ordinance, Department of Planning.
- Lake Oswego Ordinance NO 2333, including staff reports, open house flyer and related material, adopted 2003.
- Vancouver, WA Municipal Code, Ch. 20.920, Infill Development Standards.
- Battle Ground, WA Municipal Code, Ch. 17.137, Infill Residential Development.
- Sultan, WA Unified Development Code, Ch. 16.24, Standards for Infill Development in Residential Areas.
- Tacoma, WA Municipal Code, Ch. 13.06.145, Supplemental provisions for single family residential development - in Title 13.
- Seattle, WA Municipal Code, Ch. 23.43, Residential Small Lot Zone.
- Clark County, WA Code, Ch. 40.260.110 - Residential Infill, and Infill Development Code Project summary, 2008.
- Clark County, WA Infill Development Handout #46, Revised 7/18/08.
- Phoenix, AZ Infill Housing Program Development Standards.
- Phoenix, AZ Zoning Ord, ch. 6 sec 630 - Residential Infill R-I District, Multifamily Residential.
- Austin Chapter 25 – 2 - Zoning Code, Subchapter D, Article 7, sections 25-2-1521 through 25-2-1569 - Residential Infill and Neighborhood Urban Center Special Uses.
- Portland, OR Zoning Code, Ch. 33.405 - Alternative Design Density Overlay Zone and sec. 33.110.240 - Alternative Development Options - Duplex on corner lots and other potentially useful infill options.
- Lacey, WA Ordinance No. 1218 related to residential infill, 2004.
- East Point, GA Code of Ordinances, Div. II, Part 10, Ch. 2 – Zoning Regulations, sec. 2033.4 Construction design requirements for residential infill development - Specific requirements are restrictive, but interesting approach to relating new development to existing context.
- Alexandria, VA Infill Taskforce – City Council Approves Comprehensive Infill Regulations (adopted June 24, 2008).
- Provo City (UT) Zoning Code, Ch. 14.50 - Project Redevelopment Option - Provides flexibility for proposed redevelopments.
Incentives to Facilitate Infill Development
Many communities are using incentives to make infill more attractive and affordable to developers by addressing impediments to infill development such as those described above.
- Infill Incentives, Policy Link.
- Flagstaff Infill Incentives: A White Paper, March 27, 2009.
- Residential Infill Incentive Program, Riverside, CA - See especially Fee Adjustments and Cost Avoidances.
- Phoenix, AZ Infill Housing Program Incentives, and Infill Housing Program - How to qualify and apply for incentives program.
- San Mateo County, CA Transit-Oriented Development (TOD) Incentive Program, City/County Association of Governments of San Mateo County - Winner of EPA Smart Growth Achievements Award, 2002.
- Sacramento, CA Code, Title 17, Div. VI, Ch. 17.191 - Reductions in Development and Impact Fees to Promote Infill Development in Target Residential Infill Areas.
- Sacramento, CA Vacant Lot Development Program and Boarded and Vacant Homes Program.
- Tucson Resolution No. 20487 establishing the downtown infill incentive district, October 24, 2006, and Modification of Development Regulations in the Downtown Infill Incentive District, Tucson, AZ.
- Infill Housing Initiative, Miami-Dade County – Miami-Dade County has designated infill target areas and established a program that provides incentives to encourage developers to build affordable housing, and encourages redevelopment of vacant, dilapidated or abandoned properties in urban neighborhoods.
- California Bay Area Looking to Transportation Funds as Infill Housing Leverage.
- San Diego, CA Expedite Program for Affordable/in-Fill Housing & Sustainable Buildings – Information Bulletin No. 538, June 2007.
- Metropolitan Transportation Commission Housing Incentives Program, San Francisco Bay Area Rewards local governments that build housing near transit stops with funds for transportation capital projects that support Transportation for Livable Communities (TLC) goals.
- Incentives to Promote Infill Housing, Breakthroughs, Department of Housing and Urban Development Regulatory Barriers Clearinghouse, January 2009.
Funding Resources, Costs
- Chapter 10: Exploring Financing Options, Strategies for Successful Infill Development, Northeast Midwest Institute, 2001.
- Planning Grants, Better Urban Infill (BUILD) Program, Dane County, WI (program provides grants to Dane County municipalities to support planning that leads to infill development, downtown revitalization)
- Financing Brownfield Redevelopment, Georgia Quality Growth Partnership.
- Appendix A: Selected Funding Programs Useful for Infill Development, Infill Development Strategies for Shaping Livable Neighborhoods, Susan C. Enger, MRSC Report No. 38, June 1997 – Although dated information, many of the funding resources are still available (if limited).
- Funding Resources for Housing, an MRSC webpage section.
- Grant Resources for Washington Local Governments, an MRSC webpage.
Design for Infill Compatibility
Infill development design guidelines are useful tools for ensuing that the new development fits the existing context, and gains neighborhood acceptance. It is not uncommon for existing residents to resist new development within a neighborhood, particularly true when motivated by past bad experiences with new development, which failed to fit existing neighborhood character. Design guidelines in general can help assure more aesthetic development. Design guidelines that focus on infill development can guide the process of integrating new development carefully into the existing neighborhood fabric with respect to block patterns, scale, building features, landscaping, and other characteristics of the neighborhood.
- Portland, OR Infill Design Project - Includes infill design toolkit, housing prototypes, courtyard housing design competition results, and other infill housing types.
- Santa Rosa, CA Sec. 4.3: Infill Development Design Guidelines.
- Overland, KS Infill and Redevelopment Design Guidelines - Includes multi-family and commercial infill guidelines.
- Brady Village Infill Development Design Guidelines, and other infill plans and guidelines, Tulsa Oklahoma, 2003.
- City of Toronto, Ontario, Canada, Toronto Urban Design Guidelines: Infill Townhouses, 2003.
- Nanaimo, B.C. Canada, Innovative Housing for Neighbourhoods: Triplex and Quadruplex Infill Design Guidelines, Adopted 1997.
- MRSC Webpage: Design Review Guidelines and Code Provisions.
Special Types of Infill Housing and Supporting Services
- Austin, TX Neighborhood Plan Combining District Options For Neighborhood Planning Areas, Infill Special Use Options Booklet -The city provides for a set of options that may be used for small lot amnesty/infill areas, including cottage housing, "urban homes," secondary apartments, neighborhood mixed use building, residential infill, neighborhood centers, and corner stores.
- Nanaimo, B.C. Canada, Innovative Housing for Neighbourhoods: Triplex and Quadruplex Infill Design Guidelines, Adopted 1997.
- City of Toronto, Toronto Urban Design Guidelines: Infill Townhouses, 2003.
- Tucson, AZ Mixed Use Development Prototype.
- Portland, OR Infill Design Project Documents - Documents include multidwelling prototypes, and single family prototpyes (Seclect the Infill Design Toolkit: Prototypes).
- MRSC Web page, Cottage Housing.
Illustrative Examples/Case Studies
- Feature Projects, Better Urban Infill (BUILD) Program, Dane County WI, and Dane County Redevelopment Case Studies.
- Smart Growth In Action: Lowry Neighborhood Project, Denver/Aurora, Colorado, Metro Denver Redevelopment Corporation, Smart Growth Online.
- Smart Growth In Action: Belmont Dairy, Portland, Oregon, Smart Growth Online.
- Smart Growth In Action: Southside Neighborhood, Greensboro, North Carolina, Smart Growth Online.
- Strategies for Successful Infill Development, Northeast Midwest Institute, Congress for the New Urbanism, 2001.
Infill Studies
Many communities in Washington and other states are analyzing the capacity of potential infill sites to accommodate new growth as and alternative to sprawl development. Washington State has established a Buildable Lands program that requires certain high growth counties and cities to monitor land supply within urban growth areas. These jurisdictions analyze vacant, underutilized and partially used land to estimate land supply available to accommodate anticipated growth within the UGA.
- Report on the Residential Refill Study for 97 - 98, January 2000, Prepared by Sonny Conder, Portland Metro - This report studies the rate of residential refill. Refill consists of infill and redevelopment.
- The Future of Infill Housing in California: Opportunities, Potential, Feasibility and Demand, September 2005; Volume I: Study Overview, and Volume 2: Full Study - Describes a new tool, the California Infill Parcel Locator, and provides an analysis of the opportunities and limitations of expanding infill housing development potential.
- Estimating the Housing Infill Capacity of the Bay Area, Juan Onesimo Sandoval and John D. Landis, (October 1, 2000). Institute of Urban & Regional Development. IURD Working Paper Series. Paper WP-2000-06.
- Neighborhood Infill Study, Raleigh, NC – Scope of work, presentation materials, maps and data, 2008.
- Sufficiency of Infrastructure Capacity for Infill Development, by Mary Kay Falconer, and James Frank, Journal of Urban Planning and Development, Vol. 116, No. 3, December 1990, pp. 137-148.
- Estimating Residential Development Capacity: A Guidebook for Analysis and Implementation in Maryland, Maryland Department of Planning, August 2005.
- Draft Infill Development Standards and Policy Guide, David Listokin, et al for the Center for Urban Policy Research, Rutgers University, June 2006 (Revised April 2007) – Comprehensive study and synthesis of findings to address challenges and provide recommended guidelines and best practices.
- Infill Report, Aspen Colorado, 2002 – Effort to maintain downtown vitality emphasizes importance of market feasibility test of development controls.
- King County (WA) Buildable Lands Report, September, 2007.
- Snohomish County (WA) 2007 Buildable Lands Project.
- Issaquah, WA Buildable Lands and Growth Targets, 2007.
- City of Bellingham Urban Growth Area - Land Supply Analysis Summary.
Brownfields & Brownfield Development
Infill vs. Greenfield Infrastructure Costs
- The Transportation and Environmental Impacts of Infill vs. Greenfield Development: A Comparative Case Study Analysis, Bailly, H and Schroeer, W. for U.S. Environmental Protection Agency, October I, 1999.
- Case Study: Envision Utah Overview (and Conclusions) Federal Highway Administrative website, and Case Study: Envision Utah Methodology Infrastructure Costs – Model estimates regional (state-provided) subregional (local government-provided) and on-site (developer provided) infrastructure costs for raw land, infill and reuse scenarios.
- "Infill in the Marketplace: Alternatives to Sprawl," by Tom Sargent, On The Ground, v.1, no. 1, Fall 1994 - Developer's economics.
- Understanding Smart Growth Savings: What We Know about Public Infrastructure and Service Cost Savings, and How They are Misrepresented by Critics, byTodd Litman, Victoria Transport Policy Institute, B.C. Canada, December 3, 2004 - Summarizes a number of costs of sprawl studies.
- Issue Brief: Fixing It First: Targeting Infrastructure Investments to Improve State Economies and Invigorate Existing Communities, National Governors Association Best Practices.
- The Costs of Sprawl – 2000, TCRP Report 74, Robert W. Burchell et al. for Transportation Research Board, 1998 – Follow up to earlier report “The Costs of Sprawl—Revisited.”
Related Resources
MRSC Index – Urban infill

