Empty storefronts have become one of the most visible and challenging issues facing downtowns across Georgia. From retail corridors to restaurant-heavy main streets, vacancies aren’t just an aesthetic problem. Left unaddressed, they can erode tax bases, dampen foot traffic, and shift the financial burden of infrastructure almost entirely onto residential taxpayers.
In my work as counsel to several Downtown Development Authorities (DDAs), I’ve seen many cities rethinking how DDAs can help address vacancies as downtown markets continue to shift and evolve, even though DDAs are not property owners or business operators themselves.
DDAs aren’t the business, and they aren’t the landlord. The real question is: what tools do they actually have, and how can they use them to reactivate space?
Why Vacancies Matter More Than Ever
In many downtowns, restaurants and retail spaces are the primary concern. Rising rents, thinner margins, and unexpected costs have made it harder for small businesses to survive, especially in walkable urban cores.
At the same time, commercial vacancies have long-term fiscal consequences. In most cities, residential properties shoulder the bulk of infrastructure costs, while commercial uses typically generate higher tax revenue with less intensive public service demand.
If cities don’t address vacancies, the burden stays on homeowners. Diversifying the tax base with healthy commercial activity helps spread those costs more evenly.
What DDAs Can Actually Do
While DDAs don’t control every variable, they play a critical role as facilitators, connectors, and strategic partners.
In practice, many DDAs focus on:
- Helping businesses offset upfront costs through grants or cost-sharing programs
- Investing in infrastructure and streetscape improvements making areas more attractive to tenants
- Coordinating with city governments and counties to align redevelopment goals
- Acting as a connector between landlords, brokers, and potential tenants
Rather than chasing the highest rent, DDAs often prioritize long-term fit — businesses that generate foot traffic, contribute to the local economy, and reflect community character.
Some large property owners are based out of state. They don’t always know what types of businesses will succeed in a particular downtown. DDAs can help bridge that gap.
Case Studies: From Underutilized Space to Active Downtowns
One example I often point to is the Avondale Town Green Center redevelopment. What was once underused land owned by the city and DDA was transformed into a vibrant downtown anchor featuring public green space, an amphitheater, and street-level retail.
The project helped bridge previously disconnected areas of downtown while creating space for restaurants, offices, and service-oriented businesses, all centered around a public park that serves as a community amenity.
Another long-term example is the redevelopment of the former DeKalb County courthouse site in downtown Decatur. In that case, the DDA partnered with the county and a private developer to convert a former government building and surface parking into a mixed-use development with housing, retail, and pedestrian-friendly streetscapes.
These projects take time. But they show how underutilized public assets can be repositioned to generate activity, revenue, and long-term value.
What Doesn’t Work: Lessons Learned
Not every experiment succeeds. One notable effort involved a small business incubator model in which a DDA leased a vacant storefront and subleased it to early-stage entrepreneurs transitioning from online sales to brick-and-mortar retail.
The idea was well-intentioned, but the execution fell short. Many participants lacked experience managing rent, hours, and operational demands, and the DDA wasn’t equipped to provide the required level of mentorship.
DDAs can enable and support businesses, but they shouldn’t try to become business operators or incubators.
A Practical Starting Point for Cities
When people ask about “low-hanging fruit,” I usually point to relationships rather than programs.
DDAs need to know who their property owners are and why spaces are empty. If you don’t understand what’s motivating a landlord, it’s hard to help fill that space.
Looking ahead, I expect vacancy pressures to persist, particularly in high-rent downtowns. Preparing now — through targeted grants, partnerships, and realistic tenant recruitment strategies — can help cities avoid reactive decisions later.
For many communities, the path forward isn’t about quick fixes. It’s about using the DDA’s toolkit deliberately to turn empty storefronts into productive, community-serving spaces once again.
R. Kyle Williams is a founding partner of Williams Teusink and currently serves as lead counsel for DDAs in the cities of Decatur, Stone Mountain, Avondale Estates, and Clarkston.
