Jackson Medical Mall

The Jackson Medical Mall began as a retail shopping mall (Jackson Mall) in 1970. The Jackson Mall was at the time the largest shopping mall within a 400 mile radius of Jackson, Mississippi. The 900,000 square foot facility sitting on over 50 acres was the premier indoor mall in Central Mississippi until the opening of the Metrocenter Mall in 1978. The opening of the Northpark Mall in 1985 further diminished the appeal of the Jackson Mall as a retail shopping destination. The Jackson Mall was unable to compete in the same market with the newer larger malls.

In 1995, Dr. Aaron Shirley, a long-time resident of the adjoining Midtown neighborhood and former project director of Mississippi’s largest community health center, had a vision of reinventing the Jackson Mall into comprehensive healthcare complex. With the support of three of the state’s prominent banks the Jackson Medical Mall was established in 1996. At the same time, the Jackson Medical Mall Foundation was established to function as the management agency of the Mall. In 2001, the mall was re-named the Jackson Medical Mall Thad Cochran Center. Current partners include Jackson State University, Tougaloo College and the University of Mississippi Medical Center.

The goals of the Jackson Medical Mall Foundation are to promote access to cost-effective, high quality health care, provide educational opportunities and to stimulate economic and community development in the area surrounding the mall. In addition to being a healthcare and social services provider and retail facility, the mall is now a center of community activity hosting various events.

To continue on its successful track, the main campus must continue to be well-maintained on the exterior as well as interior and rejoin the surrounding community. 

An effort to redevelop a community can pull a community apart and displace its residents. The use of positive development or community based development helps to limit potential displacement and puts the vision of the community before that of a private developer. A focus on health, culture, and human development, all of which are included in the Jackson Medical Mall Foundation’s mission, rather than economic activity alone, will also help limit displacement. Displacement can occur in several ways but most common are direct displacement, exclusionary displacement, and displacement pressures. Direct displacement is the result of increasing rent or housing costs. Exclusionary displacement occurs when the number of low-income housing options are limited. Displacement pressures results from support services, non-profit organizations and churches, and historical businesses disappear and are no longer located in the community.

 The revitalization of the residential areas of Uptown should be thoughtfully implemented to prevent displacement of existing property owners. Elderly, fixed-income residents should be encouraged to remain in the community through viable housing options including comprehensive care facilities and ADA accessible single and multi-family housing. Also, low-income and fixed-income families are typically overburdened by transportation costs, and seek walkable communities with access to public transportation, work, food and groceries, educational centers, and services. According the US Census’ 2018 American Community Survey, nearly half of the population within the Uptown Community live in poverty. Furthermore, a survey conducted by the National Association of Realtors in 2017, retirees and recent college graduates prefer walkable communities with short commutes and quick errand trips. Across the planning profession, there is a noted shift toward walkable communities. It is for these reasons that the Uptown community should place priority on being a walkable community with access to employment, fresh foods, and necessary services through adequate and efficient public transportation services and alternative methods of transportation.

First steps to revitalization are physical improvements that can be implemented by the Foundation in a short time frame. They include the installation of decorative, yet functional, lighting around the vast parking areas and vehicular access points to the campus. The Mall must also work to rejoin the surrounding community by removing the physical fencing barrier. While the fence provides a sense of security of visitors and employees of the Medical Mall, it creates a sense of insecurity of the areas immediately surrounding the Mall. The sense of security must reach beyond a physical fence to encourage reinvestment and redevelopment. Security enhancements that do not create a physical barriers may include site lighting, street lighting, and well-maintained landscaping with a window of visibility from 3 feet to 7 feet. The principles from Crime Prevention Through Environmental Design (CPTED) may be applicable to the improvements around the Jackson Medical Mall property. The use of pathways with low (not be allowed to exceed 3 feet in height) thorny or prickly bushes lining it creates a soft barrier. Landscaping should also be spaced in a manner that does not create easy hiding places. Bushes and shrubs should be maintained so that space remains between each plant to prevent the creation of blind spots or hiding places.

The reinvestment in residential properties surrounding the Jackson Medical Mall is vital to the successful rebirth of the community. The Jackson Medical Mall Foundation has been actively purchasing and redeveloping dilapidated or abandoned properties in the residential areas. The Foundation has constructed new residential structures on these parcels greatly improving the neighborhood. However, the development pattern must be varied within the area to prevent a “cookie-cutter” community that is reminiscent of public housing. 

Housing needs to be varied by size, materials, setbacks, form, and shape and should not be repeated in close proximity. Historical development patterns and styles should be replicated when possible. Accessory dwelling units such as above garage quarters should be allowed and encouraged. Garages should be set back from the front building line, if attached, and when detached should be located near the rear of the property. Housing should be attractive and affordable for all incomes. Pride in ownership helps maintain property values; therefore, landscaping and building materials should be durable and easy to maintain. Brick and other masonry products, such as fiber cement siding, are generally very durable and have a significant life span. Wood and vinyl products tend to require additional maintenance. Additionally, low growing shrubs that require little trimming are ideal.

The housing stock should meet the needs of a multi-generational community who are in various stages of life. Starter homes and apartments, carriage or garage apartments, zero-lot line dwellings, large single family dwellings, and assisted senior housing should be provided and intermixed in this diverse area. Housing affordability should not be limited based on location. Diversity in housing unit size and type will greatly impact the availability of affordable housing. Single family homes can vary with single or two story units on the same general footprint. A row house or townhome development may feature a variety of square footage options as well. Exterior finishes may be kept similar while interior finishes may vary with price point. For example, some homes may feature heart of pine floors and high-end stone counters while others have wood-like tile and replica stone, which are more affordable and in many cases more durable. Accessory dwelling units can serve the population of those seeking smaller, more efficient living space, and construction typically costs significantly less than traditional multiple family units. 

Much of the residential property with the Uptown District was constructed between 1940 and 1970; therefore, most were constructed prior to the City’s first Zoning Ordinance and without development regulations. The result is a mixture of housing styles and site development patterns, which provides a variety of housing options for all incomes and life stages. Historical development patterns also typically include a mixture of uses including offices, small scale neighborhood commercial, and general commercial along thoroughfares. Therefore, it is recommended that the Jackson Medical Mall Foundation work with the City of Jackson to amend the City’s Zoning Ordinance to allow for more flexible development within this study area. The proposed zoning district is more similar to historic development patterns, but continues to provide appropriate regulations to prevent overcrowding, incompatible land uses, and public safety measures. As such, the proposed zoning district has less restrictive dimensional controls, such as setback distances and lot size, which allows development to occur in a manner that best suits the needs of residents. This also reduces land development costs and the overall cost of housing. With regards to allowed uses, many low density dwelling types are allowed outright, while higher density, multiple family dwelling units and commercial uses are allowed with a conditional use permit. Single family homes, zero-lot line units, duplexes, and townhouses are allowed outright. In addition to multiple family dwellings, restaurants, professional offices and businesses, child and adult care centers, personal care or nursing homes, and other similar uses are allowed by permit. 

The proposed district also makes an allowance for accessory dwelling units, or dwelling units located within an accessory structure or as an independent dwelling unit within the main structure. Garage apartments, carriage house units, or granny flats are common terms for these dwelling units. Such units are historically significant in the provision of housing; however, in recent history they have been restricted in many jurisdictions. The benefits of accessory dwelling units in regards to housing availability, affordability, and type far outweigh concerns over off-street parking, over burdening the infrastructure, or rental compliance related to these units. Accessory dwelling units provide an additional type of housing unit that is typically smaller in size, lower yard maintenance requirements, and can impact the affordability of both the principal unit and the accessory unit. Accessory units frequently negate housing shortages by increasing the capacity of each parcel and without the need for large multiple family buildings. It also meets the demand for senior or elderly housing within close proximity to family, and can meet the needs of a single resident in need of a smaller living space. Rental income from an accessory dwelling unit can effectively reduce the housing cost of the principal unit, while also keeping the rental cost lower. 

An accessory dwelling unit can be constructed for approximately one third the cost of a similar sized unit in a traditional multiple family structure. These units are more compatible with residential land uses and do not take away from the traditional neighborhood pattern.

The intent of this proposed zoning district is to eliminate barriers to redevelopment through land use regulations that are not otherwise suited for the existing parcel layout and infrastructure of this community. It provides opportunity for more flexible design and scale, which will allow greater diversity in both the appearance of new development and affordability. It seeks to encourage compatible development and neighborhood revitalization. Revitalization should not imply displacement of existing residents and businesses. It should help restore property values so that owners can reinvest in their homes.

The heart of this area is Cade Chapel Missionary Baptist Church and Walton Elementary School. According to the U.S. Census, the majority of these residential structures were built between 1950 and 1960, and are located on parcels ranging from 4,000 square feet to 8,500 square feet. There are several commercial uses located along Bailey Avenue and Livingston Road that serve the neighborhood. Industrial uses line the railroad on the eastern side of this area, and a commercial and industrial park is located in the southern most portion. Multiple family developments may be more compatible with the adjacent industrial uses in the eastern and southern portions of this area. Small clusters of multiple family structures with a limited number of units spread about the area would offer additional housing options for all life stages and incomes. The Jackson Medical Mall Foundation development along Wheeler Avenue is a prime example of scale and size for a multiple family development in this area. The interior sections of this area should remain single family detached, zero lot line, or two to four unit townhouses. Accessory dwelling units should be encouraged in this area. Housing units for the elderly or disabled should be constructed. Single level, slab built units with limited yards are most accessible, and such units may feature larger doorways, open floor plans, and other similar ADA elements. Parcels within the floodplain may be reserved for a passive park and open space.

The Jackson Medical Mall anchors this area, which remains within its original footprint, and is surrounded by adequate parking and outparcels. The outer parcels of the Mall are developed with a renovated strip development, including the only grocery store in the Uptown area. In addition to the main mall structure, a secondary structure that was previously home to big box retail store remains on the property. This building has been occupied in the recent past by a non-profit community based organization, but could be repurposed for a fitness and rehabilitation center, an indoor recreation business, or a multitude of other similar options. The community garden located behind this building and the newly established garden along Bailey Avenue should be continued. New partnerships with nearby churches and schools could be formed to enrich the lives of residents, especially young children, through education and health habits. The remaining parcels of this area are home to essential services and retailers, such as banks, an operations center for an ambulance service, and a USPS facility. These uses provide necessary services to the residents of Uptown and visitors to the Medical Mall. The operations center for AMR, an ambulance service, is an example of a secondary service that is compatible with the Medical Mall mission. Other businesses that provide support services to the medical community may consider locating within the Uptown district given the proximity to the three largest hospitals in the Jackson metro area.