HPC_ATTACH DTHC PLAN DRAFT OUTLINE AND GUIDELINES 31126.PDF

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The Downtown Tempe Historic Core Plan  
 
An in-progress discussion draft 
 
This document is intended to provide an initial framework and working draft of the Downtown 
Tempe Historic Core Plan for review and discussion at the March 11, 2026, Historic 
Preservation Commission and the March 24, 2026, Development Review Commission 
meetings. Public review and comments of this document are also welcomed and will be 
encouraged at the March 4 community meetings and throughout the March window of 
stakeholder and focus group meetings. Comments can be provided per City of Tempe policy; 
more information is located on the project webpage at: 
 
https://www.tempe.gov/government/community-development/planning/historic-
preservation/Downtown-tempe-historic-core-plan 
 
This document begins with an overall outline that describes the structure, organization, and key 
components of the full document, followed by in-progress drafts of three core chapters. These 
chapters represent an early iteration of the Plan’s direction and content and are being shared to 
support meaningful review and feedback. Throughout March, the project team will continue 
refining and expanding these sections while incorporating input received through public 
engagement activities and Commission meetings. All feedback gathered during this process will 
inform a comprehensive, revised public draft to be released later this spring. 
 
The following page includes a table of contents for the draft plan, and the remainder of the 
document includes drafts of Chapter 3: The Downtown Tempe Historic Core, Chapter 4: 
Recommendations and Strategies, and Chapter 5: Design Guidelines. Chapter 5: Design 
Guidelines includes a few sample graphics to illustrate key guidelines; however, the final version 
that will be released with the full draft plan will include graphics and visuals for all design 
guidelines.

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Downtown Tempe Historic Core Plan — OVERALL Outline/Table of Contents 
Table of Contents and Land Acknowledgement 
1. Introduction 
a. Purpose 
b. Planning Area 
c. History 
d. Planning Context 
e. Framework and How to Use this Plan 
2. Plan Goals 
a. Introduction 
b. Community Vision 
c. Plan Goals 
3. The Downtown Tempe Historic Core 
a. Study Area 
b. Downtown Tempe Historic Core 
c. Opportunities 
d. Considerations 
4. Recommendations and Strategies 
a. Introduction 
b. Policy Framework 
c. Fiscal Feasibility and Incentive Strategy 
d. Policies and Recommendations Matrix 
5. Design Guidelines 
a. Introduction 
b. Historic Core Character Framework (Overall Design Principles) 
c. Historic Preservation 
d. Building Height and Massing (inc. Building Height Concept Study) 
e. Ground Floor and Pedestrian Entries 
f. 
Shade and Climate Responsive Design 
g. Architectural Materials 
h. Open Space and Public Realm 
i. 
Parking and Service 
j. 
Gateways and Transitions 
6. Implementation 
a. Introduction 
b. Implementation Framework 
c. Regulatory Tools 
d. Funding & Financing 
e. Monitoring & Metrics

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Chapter 3. The Downtown Tempe Historic Core 
Downtown Tempe and the plan “Study Area” 
This Plan begins by establishing a comprehensive Study Area that captures the full 
context of Downtown Tempe and ensures that future recommendations are grounded in 
an understanding of the entire Downtown. The Study Area reflects what many recognize 
as Downtown Tempe, which is a walkable, mixed-use environment that has historically 
served as the community’s primary center of commerce, public life, and cultural activity. 
It includes concentrations of historic, civic, and higher-density development, as well as 
areas that have experienced significant recent reinvestment. 
 
The Study Area is intentionally broad in order to evaluate Downtown from multiple, 
interrelated perspectives. From a market and economic vitality standpoint, it considers 
the role of Downtown Tempe as a regional destination and employment center, including 
its evolving mix of retail, office, residential, and entertainment uses. From a character 
and historic resources perspective, it acknowledges both the concentrations of historic 
fabric and the contemporary development that has reshaped portions of the skyline. 
From a development potential standpoint, it recognizes vacant and underutilized parcels, 
such as surface parking lots and vacant sites, as well as entitled or recently completed 
projects that will influence future change. It also identifies areas of importance and long-
term significance, including civic spaces, established parks and preserves, and major 
institutional anchors. 
 
Key contextual elements shape this broader area. Parks and preserves to the north and 
northeast, including Tempe Beach Park and Tempe Butte (‘Oidbag Do’Ag), serve as 
enduring natural anchors. Civic spaces are distributed throughout Downtown and 
provide important public gathering places. Arizona State University, located to the east 
and south and present throughout the Downtown area, is a significant institutional 
neighbor whose growth and activity patterns have a substantial influence on economic 
conditions, development intensity, and daily life. 
 
While the character of the overall Study Area is varied and not uniformly historic, it is 
critical to understand this full geography as a cohesive system. The Study Area 
boundary is intended to capture the majority of Downtown activity, including 
concentrations of historic resources and areas of recent redevelopment. Importantly, this 
Plan includes only those properties and public rights-of-way under the jurisdiction of the 
City of Tempe; areas outside City authority are acknowledged for context but are not 
subject to the Plan’s policies or recommendation framework. Recommendations and 
considerations related to the Study Area are further detailed in the chapters that follow. 
 
A map depicting the Study Area is located on Page 5 of this document.

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The Downtown Tempe Historic Core 
Within the broader Study Area, this Plan identifies a more focused geography: the 
Downtown Tempe Historic Core. As guided by General Plan 2050, a central charge of 
this effort is to define the boundary of this Historic Core and articulate its role as the 
symbolic and functional heart of Downtown. 
 
“Downtown” in this context refers to the traditional center of commerce and civic life 
which is compact, pedestrian-oriented, and mixed-use in character. “Historic” reflects a 
consistent and unified historic fabric, characterized by continuity in building scale, 
architectural style, materials, street patterns, and parcel sizes. This definition 
emphasizes a cohesive historic context rather than isolated or relocated historic 
structures. Finally, “Core” signals a focused place where preservation, reinvestment, and 
design guidance are intentionally aligned to reinforce identity and integrity. 
 
The Downtown Tempe Historic Core encompasses a key concentration of historic 
resources within the larger Downtown, including prominent clusters near Mill Avenue 
and Fifth Street, as well as additional groupings to the northwest. Within this smaller 
area, the Plan applies its most detailed recommendations and focused design 
guidelines. 
 
Concentrating policy direction and design standards within the Downtown Tempe 
Historic Core is intended to: 
• 
Protect and reinforce the integrity of historic resources 
• 
Strengthen and clarify Downtown’s identity 
• 
Provide predictability for property owners, developers, and the public 
• 
Balance preservation with compatible infill and adaptive reuse 
• 
Retain a legible, human-scaled, and vibrant historic fabric 
 
By distinguishing the Historic Core from the broader Study Area, the Plan establishes a 
clear geographic focus for preservation-sensitive growth while still recognizing the 
interconnected nature of the entire Downtown district. This also allows Tempe to 
continue to meet its growth goals within the context of being landlocked and not able to 
grow its boundaries. 
 
A map depicting the Downtown Tempe Historic Core is located on Page 5 of this 
document.

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Opportunities 
To support implementation within the Downtown Tempe Historic Core, the Plan includes 
an Opportunities Map that identifies priority sites and public realm connections critical to 
achieving the community’s vision. 
 
Opportunity sites include vacant and underutilized parcels, such as surface parking lots 
and low-intensity properties, that present the potential for context-sensitive infill 
development, adaptive reuse, or catalytic mixed-use projects. These sites are evaluated 
not only for their redevelopment potential, but also for their ability to reinforce historic 
character, strengthen pedestrian activity, and enhance economic vitality. 
 
Equally important are public realm connections. The Opportunities Map highlights key 
corridors, pedestrian linkages, and civic spaces that can better knit together historic 
assets, commercial activity, and surrounding neighborhoods. Strengthening these 
connections through streetscape enhancements, improved crossings, shade, lighting, 
and wayfinding will be central to reinforcing the Historic Core as a cohesive and 
walkable environment. Together, targeted infill and strategic public realm investments 
form the backbone of the Historic Core strategy.  
 
An opportunities map is located on the following page.

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Considerations 
In addition to identifying opportunities, the Plan includes a Considerations Map that 
documents key observations and contextual factors that will influence implementation 
over time. These considerations may function as either opportunities or constraints, 
depending on how they are addressed as preservation efforts, growth pressures, and 
broader change unfold in the coming years. 
 
Considerations include existing historic resources and districts, properties with 
redevelopment approvals or entitlements, recent high-density projects unlikely to 
redevelop in the near term, and adjacency conditions that may affect scale transitions or 
compatibility. They also reflect infrastructure realities, ownership patterns, and proximity 
to major anchors such as parks, civic spaces, and Arizona State University. 
 
By mapping these factors, the Plan provides a forward-looking framework for decision-
making. The Considerations Map is not regulatory in itself; rather, it is a tool to ensure 
that implementation remains responsive to context. As Downtown Tempe continues to 
evolve, these mapped elements will help the City and community balance preservation 
with growth, anticipate potential constraints, and identify emerging opportunities that 
reinforce the long-term vision for the Downtown Tempe Historic Core and the broader 
Study Area. 
 
A considerations map is located on the following page.

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Chapter 4. Recommendations & Strategies 
Introduction 
The following section provides a framework for the policies, key actions, incentive 
strategies, and measures for success which will serve as the basis of the implementation 
of the Downtown Tempe Historic Core Plan. Building on the guidance set forth in 
General Plan 2050, this chapter also serves as the basis for the development of Chapter 
5: Design Guidelines which seeks to accomplish key recommendations by setting the 
stage for future development. The following categories will be covered in this section: 
 
• 
LU – Land Use and Development 
o A strategic designation of geographic areas for specific functional 
purposes such as residential or commercial to ensure compatible growth 
and density management. 
• 
ED – Economic Development 
o Strengthening the local tax base, fostering job creation, and improving the 
long-term financial resilience of the City of Tempe.  
• 
PR – Public Realm and Placemaking 
o Design and activation or publicly accessible spaces including streets and 
sidewalks, parks, and plazas to enhance social connectivity and the 
aesthetic character of the urban environment.  
• 
MP – Mobility and Parking 
o Managing integrated transportation systems including private vehicles, 
rideshare, transit, bicycles, and walking as well as the efficient storage of 
vehicles.  
• 
IS – Infrastructure and Sustainability 
o Essential utility systems such as water, power, and waste and integration 
with climate-responsive strategies to ensure long-term environmental and 
operational viability.  
• 
HP – Historic Preservation 
o Preservation, rehabilitation (adaptive re-use), and restoration of 
significant architectural, cultural, and archaeological resources to 
maintain community identity, character, and heritage within the evolving 
urban fabric.  
 
Each policy category above will begin with a brief introduction to the context in the 
Downtown Tempe Historic Core and the study area of this plan and then provide 
recommendations, the reasoning behind them, and key considerations. This initial 
framework will lead into a policy matrix for each category which includes policies, key 
actions, responsible parties, and success metrics that can be tracked and implemented 
over time in accordance with Chapter 6: Implementation.

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LU-Land Use and Development 
Context 
The Land Use and Development framework establishes a balanced approach that 
both reinforces the distinct, cohesive historic character of the Downtown Tempe 
Historic Core (DTHC) and accommodates strategic growth across the broader 
Downtown. Within the DTHC, development is guided by context-sensitive policies 
that prioritize preservation, adaptive reuse, and compatible infill, ensuring that new 
investment strengthens the area’s historic fabric, walkability, and human-scaled 
environment. This subarea serves as the cultural and architectural heart of 
Downtown, where the continuity of historic form, fine-grained parcels, and active 
ground floors defines a recognizable and unified sense of place. 
 
Beyond the DTHC, the plan identifies targeted opportunity areas where additional 
development intensity, mixed-use activity, and vertical growth can be 
accommodated to support Downtown’s evolving role as an economic, residential, 
and cultural center. By directing the greatest scale and density to these areas, the 
plan relieves pressure on historic resources while enabling continued 
reinvestment, job creation, and housing expansion. Together, this approach 
ensures that preservation and progress are not competing forces, but 
complementary strategies that sustain Downtown identity while positioning it for 
long-term vitality and growth. 
 
Framework 
Application 
Area 
Recommendation(s) 
Why 
Considerations 
Within the 
DTHC 
(along Mill 
Avenue) 
Establish the Downtown 
Tempe Historic Core 
through this planning 
effort. Consider 
designating the DTHC to 
serve as a potential 
“sending” area for a 
Transfer of Development 
Rights (TDR) program.  
Thoughtful 
preservation ensures 
that growth can occur 
in compatible ways, 
allowing the low scale 
historic core to remain 
the symbolic and 
social heart of the 
community while 
accommodating 
change over time. 
Catalyst sites have been 
identified within the DTHC 
as potential development or 
redevelopment sites which 
can seek to fill gaps in the 
street-wall while respecting 
and reinforcing the 
vernacular of the DTHC.  
Within the 
DTHC (not 
along Mill 
Avenue) 
Provide clear guidelines 
and identify opportunities 
for infill, adaptive reuse, 
and redevelopment that 
establishes a clear 
transition between the 
DTHC and Downtown 
Tempe beyond.  
At the edges of the 
historic core, scattered 
historic resources 
present an important 
opportunity to extend 
and reinforce the 
character established 
along Mill Avenue. 
While these properties 
may be more isolated 
or interspersed with 
newer or underutilized 
sites, they collectively 
contribute to the 
broader historic

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narrative and can 
serve as anchors for 
compatible infill. 
Within the 
DTHC Study 
Area / 
Downtown 
Tempe 
Establish growth areas 
that are primed for 
employment and housing 
growth with ample 
infrastructure and mobility. 
These growth areas 
should align with General 
Plan 2050. These growth 
areas have the potential to 
serve as “receiving” areas 
for a Transfer of 
Development Rights (TDR) 
program.  
Within the study area 
of this plan, there are 
a number of historic 
resources; however, 
these resources are 
not tied to the historic 
fabric that is shared 
within the DTHC. 
While these individual 
resources should be 
carefully protected, 
the overall Downtown 
presents a great 
opportunity for 
additional growth with 
sites identified as 
opportunities for 
development.  
Focusing growth within the 
general area of Downtown 
Tempe outside of the DTHC 
as well as in other 
designated growth areas 
will allow for a focused and 
deliberate approach to 
preservation to occur within 
the DTHC.  
Other Growth 
Areas outside 
of Downtown 
Tempe 
designated 
by General 
Plan 2050 
These areas contain 
no Downtown Historic 
fabric and are 
designated by the 
general plan as areas 
to focus growth

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Land Use and Development Policy Summary Matrix 
 
 
 
Policy 
Key Actions, 
Strategies 
Responsible 
Parties* 
Fiscal / Incentive 
Strategy 
Success Metrics 
LU 
Land Use and 
Development 
  
  
  
  
1 
Focus growth in 
opportunity and 
catalyst areas 
while protecting 
historic assets 
• Map catalyst and 
opportunity sites 
within the DTHC and 
the Downtown 
City 
• Target infrastructure 
funding and CIP projects to 
opportunity areas 
• Enhance the streamlined 
approval process for 
qualifying projects 
• Potential reduced parking 
requirements for qualifying 
projects 
• Fee waivers for adaptive 
reuse 
• Provide resources for 
rehabilitation grants and low-
interest loan programs 
• Additional incentives and 
funding sources are covered 
in Chapter 6: 
Implementation 
• Utilize the Project 
Assistance Team in Building 
Safety for assistance. 
• Percentage of 
development in 
growth areas 
• Opportunity sites 
redeveloped 
• Infill ratio 
• New housing units 
added 
• Commercial square 
footage added 
• Percentage of 
projects with 
transitions and 
contextual design 
• Number of projects 
that utilized reuse 
instead of demolition 
• Number of historic 
buildings 
rehabilitated 
• Align zoning and 
height framework 
City 
• Prioritize infill in the 
DTHC 
City, Private 
• Continue to invest in 
infrastructure in the 
DTHC and growth 
areas 
City, Private, 
Partners 
2 
Encourage 
mixed-use and 
vertical 
intensity in 
appropriate 
locations 
• Update the Building 
Concept Heights 
Study 
City 
• Allow bonuses tied to 
preservation 
City 
• Incentivize contextual 
step-backs 
City, Private 
3 
Promote 
adaptive reuse 
and 
reinvestment 
• Further streamline 
adaptive reuse 
approvals 
City 
• Remove code barriers 
for adaptive reuse of 
historic buildings 
City 
• Provide reuse 
assistance 
City, Private 
 
 
*Responsible Parties (Typical) 
City: Planning, Economic Development, Public Works, Historic Preservation, Transportation, 
Parks & Recreation, Facilities, Sustainability 
Private: Developers, Property Owners, Businesses, Institutions 
Partners: Tribal Nations, Downtown Association, Nonprofits, Utilities, State/Federal Agencies

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ED-Economic Development  
Context 
As a land-locked city, Tempe’s economic future is defined by strategic 
intensification of its existing footprint rather than outward expansion. The 
Downtown Urban Core as defined by General Plan 2050 serves as the 
primary engine for this growth, where a convergence of housing supply 
and employment density works together with the talent pool of Arizona 
State University to create a self-sustaining economic ecosystem  
 
The dual focus on housing and jobs is essential for a land-locked city as it 
can maximize the productivity of limited land, strengthen the municipal tax 
base to fund critical infrastructure city-wide (not just Downtown), and strive 
toward a city where economic opportunity and quality of life are closely 
linked.  
Framework 
Application Area 
Recommendation(s) 
Why 
Considerations 
Within the DTHC 
(along Mill 
Avenue) 
Lower barriers for small 
entrepreneurs by 
aligning incentives, 
façade improvements, 
and tenant support 
programs that are 
provided through 
nonprofit and 
government adjacent 
partners. Support 
outdoor merchandising, 
sidewalk dining, and 
regular programming to 
increase foot traffic and 
dwell time. 
 
The street’s 
architectural 
authenticity due in 
part to the historic 
character provides a 
key economic asset. 
Historic preservation 
and adaptive reuse 
can be leveraged to 
differentiate the 
corridor and sustain a 
high energy 
pedestrian-oriented 
environment in 
support of long-term 
small business 
vitality.  
Due to the high foot 
traffic and activity and 
less convenient parking 
options, this area may 
not be a good candidate 
for day-to-day local 
serving uses.   
Within the DTHC 
(not along Mill 
Avenue) 
Explore additional 
opportunities within 
larger footprint buildings 
and sites for an 
incubator-style 
business hub or public 
market as a catalyst for 
public gathering. This 
also helps allow small 
business owners and 
startup 
retailers/restaurants to 
grow before committing 
to a long-term lease in 
a standalone storefront.  
This area does not 
benefit from the 
continuous street-
wall and active 
storefronts that Mill 
Ave brings, so 
focusing 
development that can 
attract a variety of 
users and shoppers 
can help support the 
“park-once” 
approach.  
Professional services, 
daily uses, and small 
offices are well suited to 
be located within the 
DTHC and not along 
Mill due to the easier 
access to parking and 
proximity to Mill Ave for 
potential linking of trips.  
Within the DTHC 
Study Area / 
Promote a balanced 
mix of resident and 
workforce serving uses 
The Downtown has 
been identified as an 
important growth 
Resident serving uses 
often face urban friction 
that can make them

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Downtown 
Tempe 
across the broader 
Downtown by 
continuing to prioritize 
high density and 
intensity housing and 
mixed-use projects. 
Seek to bring in anchor 
tenants in retail spaces 
that support day-to-day 
living of the growing 
Downtown population 
such as pharmacy, 
healthcare, childcare, 
and fitness. Align 
recruitment and 
incentive strategies to 
attract employers that 
generate stable, year-
round jobs that 
complement the 
existing economic base 
and provide 
opportunities for ASU 
students to stay in 
Tempe after their 
education is complete. 
area for Tempe and 
is designated as the 
“Urban Core” in the 
Tempe Tomorrow: 
General Plan 2050. A 
central pillar of the 
2050 plan is for 
residents to be able 
to access all daily 
needs within a 20-
minute walk, bike, or 
transit trip. 
harder to attract than 
bars, restaurants, retail, 
office, or residential in 
growing Downtowns. 
These essential 
services are typically 
the last to arrive in a 
developing urban core 
due to the constraints 
related to logistics and a 
constant flow of goods, 
square footage gaps 
between suburban and 
urban models, and slim 
margins.

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Economic Development Policy Summary Matrix 
 
 
Policy 
Key Actions, 
Strategies 
Responsible 
Parties* 
Fiscal / Incentive 
Strategy 
Success Metrics 
ED 
Economic 
Development 
  
  
  
  
1 
Strengthen 
Downtown as a 
diverse 
economic center 
• Recruit retail and 
dining partners 
• Recruit businesses 
and partners that 
provide cultural 
experiences such as 
art, museums, 
history, and science 
City, Private, 
Partners 
• Partner with non-
government entities to 
develop business attraction 
incentives 
• Consider developing a 
small business loan 
program  
• Marketing partnerships 
• Incubator partnerships 
• Event sponsorships and 
partnerships 
• Retail vacancies 
• New businesses 
• Survival rates 
• Job growth 
• Local business 
growth as a 
percentage of all 
businesses 
• Program 
participation 
• Activate ground 
floors 
City, Private, 
Partners 
2 
Support 
entrepreneurship 
and small 
business 
• Provide business 
support programs 
City, Private, 
Partners 
• Incentivize flexible 
small retail spaces 
City, Private, 
Partners 
• Conduct business 
retention outreach 
City, Private, 
Partners 
 
 
*Responsible Parties (Typical) 
City: Planning, Economic Development, Public Works, Historic Preservation, Transportation, 
Parks & Recreation, Facilities, Sustainability 
Private: Developers, Property Owners, Businesses, Institutions 
Partners: Tribal Nations, Downtown Association, Nonprofits, Utilities, State/Federal Agencies

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PR-Public Realm and Placemaking 
Context 
The Downtown Tempe Historic Core is defined by a strong north-south spine 
along Mill Avenue, reinforced by east-west connectors at 3rd, 5th, 6th and 7th 
Streets. It transitions from University Drive at the south to Tempe Beach Park 
and Tempe Butte at the north. The district has a young demographic, strong 
restaurant and nightlife presence, limited shade, high heat exposure, limited 
parking, and a community-driven desire to strengthen cultural identity and 
integrate Tribal culture. 
 
 
Framework 
Application 
Area 
Recommendation 
Why 
Considerations 
Within the 
DTHC:  
 
Intersections 
(5th St and 
Mill Ave, Rio 
Salado Pkwy 
and Mill Ave) 
Level 1: Civic 
Anchors - Install a 
walk-through 
sculptural shade 
structure that defines 
gathering space at 
5th and Mill, 
Indigenous led 
installation at the 
northeast edge 
rooted in land, water, 
and landscape 
integration.  
These locations mark 
arrival, carry a high 
amount of pedestrian 
flow, connect to the 
water and land, and 
provide opportunities 
for climate 
infrastructure including 
increased dwell time in 
a high heat 
environment at 5th and 
Mill.  
Limit to 2-3 total within the 
DTHC. Prioritize using artists 
and storytellers from the Four 
Southern Tribes. Engagement 
should include partnership with 
SRP-MIC and GRIC to help 
define narrative priorities and 
cultural protocols. Ensure that 
any installations do not block 
views of historic resources or 
Tempe Butte.  
Within the 
DTHC: 
 
Mill Avenue 
Sidewalks, 
3rd and 5th 
Street 
sidewalks, 
Key 
pedestrian 
crossings 
Level 2: Cultural 
Spine System – 
Install ground-plane 
and architectural 
interventions, 
including bronze 
inlays or flush-
mounted interpretive 
plaques, Indigenous 
storytelling and 
history of place, and 
integrated 
wayfinding elements. 
These corridors 
structure daily 
movement and deserve 
layered storytelling that 
builds identity, 
reinforces Indigenous 
history of place, and 
enhances legibility—
without relying on large 
monument installations 
that overwhelm the 
public realm. 
Prioritize Mill Avenue to 
establish coherence and 
extend east-west once 
anchors are complete. 
Engagement should include 
partnership with SRP-MIC and 
GRIC to help define narrative 
priorities and cultural 
protocols. 
Within the 
DTHC: 
 
Underutilized 
Facades, 
secondary 
wall 
conditions 
Level 3: Narrative 
and Community 
Expression – 
Establish a limited 
curated mural 
program, rotating 
contemporary works, 
and temporary light 
or projection 
installations. 
These areas allow 
storytelling without 
competing with primary 
civic anchors. 
Implemented after Level 1: 
Anchors to ensure narrative 
enrichment rather than visual 
competition. Prevent over-
saturation of murals by 
keeping installations 
distributed in a varied manner 
throughout the DTHC. 
Rotating mural programs 
should include annual 
Indigenous artist participation.

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Within the 
DTHC Study 
Area: 
 
Along Mill 
Avenue, 
alleys, and 
east-west 
streets 
Level 4: Micro 
Interpretation – 
Install wayfinding 
nodes, cultural 
interpretive panels, 
engraved stone, 
historic artifacts 
(through donations 
and partner 
collaboration), and 
discreet interpretive 
technology.  
To support ease of 
movement to, within 
and throughout the 
DTHC as well as 
reward close reading 
and supporting 
educational goals.  
Integrate along Mill Avenue 
and expand incrementally 
based on programming. 
Prioritize using artists and 
storytellers from the Four 
Southern Tribes for 
interpretive materials and 
artistic elements, especially in 
the northern portion of the 
DTHC. Avoid equal distribution 
of sculptural elements and 
calibrate scale to adjacent 
buildings. Engagement should 
include partnership with SRP-
MIC and GRIC to help define 
narrative priorities and cultural 
protocols.

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Public Realm and Placemaking Policy Summary Matrix 
 
 
Policy 
Key Actions, Strategies 
Responsible 
Parties* 
Fiscal / 
Incentive 
Strategy 
Success Metrics 
PR 
Public Realm and 
Placemaking 
  
  
  
  
1 
Create a connected 
public realm network 
• Develop a unique DTHC 
wayfinding and storytelling 
program that highlights 
the cultural and historic 
connections throughout 
the Downtown 
City 
• Capital 
Improvement 
Program (CIP)  
• Grants from 
state and federal 
governments 
• Development 
impact 
contributions 
• Reinvestment of 
sales tax related 
to construction 
costs 
• Public-private 
partnerships 
• Sponsorships 
• Indigenous 
installations of art, 
wayfinding, and 
cultural storytelling 
• Shade coverage 
percentage 
• Pedestrian count 
growth 
• Event attendance 
• Public space 
usage 
•A strong central 
gathering landmark 
• Increase shade and 
comfort 
City, Private, 
Partners 
2 
Extend dwell time, 
support retail 
adjacency, and enable 
nighttime activation 
with public art and 
placemaking 
• Develop a public art and 
wayfinding program 
specific to the DTHC 
City, Private, 
Partners 
3 
Enhance presence of 
Tempe Butte throughout 
the DTHC 
• Utilize Tempe Butte as a 
guiding cultural reference, 
the DTHC exists within 
layered Native, Euro-
American, and 
Mexican/Mexican-
American history and not 
merely adjacent to it 
City, Private, 
Partners 
4 
Strengthen civic spaces 
and public realm 
identity 
• Invest in gathering spaces 
City, Private, 
Partners 
• Integrate history and 
storytelling into the public 
realm through a public art 
integration framework 
City, Private, 
Partners 
 
*Responsible Parties (Typical) 
City: Planning, Economic Development, Public Works, Historic Preservation, Transportation, 
Parks & Recreation, Facilities, Sustainability 
Private: Developers, Property Owners, Businesses, Institutions 
Partners: Tribal Nations, Downtown Association, Nonprofits, Utilities, State/Federal Agencies

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MP-Mobility and Parking 
 
Context 
As Downtown Tempe continues to evolve into a high-density concentration 
of housing and employment, a framework to transition from car-
dependency into a multi-modal urban center is imperative. Maximizing the 
utility of significant public investments in the Tempe Streetcar and the 
Valley Metro Light Rail by prioritizing transit, cycling, and pedestrian 
movement as the most efficient ways to navigate the DTHC.  
 
Recognizing that vehicle access remains a necessity for many Tempe 
residents and visitors, a shift away from scattered surface parking lots 
toward strategic, centralized parking hubs will reduce environmental 
impact and mitigate traffic congestion that naturally accompanies vertical 
growth in a land-locked environment. This approach ensures that while the 
DTHC can remain a pedestrian-priority zone, local access will be 
preserved through a predictable and technologically advanced wayfinding 
system that supports businesses and maintains ease of entry for the entire 
community.  
Framework 
Application Area 
Recommendation(s) 
Why 
Considerations 
Within the DTHC 
(along Mill 
Avenue) 
 
Build on the recent 
streetscape investments 
along Mill Avenue by 
prioritizing short-term, 
high-turnover parking 
along Mill Ave. Direct 
longer-term parking to 
strategically located lots 
on the edges of and 
outside of the DTHC. 
Reinforce a “park-once” 
model along Mill for users 
seeking to link trips. 
 
This area should also 
continue to leverage its 
proximity to high-capacity 
transit by integrating 
transit information, 
wayfinding, and local 
connection opportunities 
throughout the DTHC to 
encourage the “park-
once” approach.    
The DTHC was 
historically the 
home of the “Main 
Street” shopping 
concept and 
currently serves as 
Tempe’s version of 
a true walkable and 
historic retail center 
for a variety of 
small and 
independent 
retailers and 
businesses. This 
experience is 
dependent on a 
safe and pleasant 
sidewalk and 
mobility condition 
that prioritizes 
pedestrian 
movement. 
High-turnover and short-
term parking along Mill 
allows for businesses to 
serve more customers 
who arrive by 
automobile while 
reducing congestion by 
directing longer-term 
parking toward lots 
away from Mill.  
Within the DTHC 
(not along Mill 
Avenue) 
Locate parking areas in 
locations that are easily 
navigated to by drivers 
through clear and 
obvious wayfinding 
Keeping parking 
lots and vehicular 
access to lots away 
from Mill Ave helps 
maintain the 
Clear wayfinding to 
divert drivers off of Mill 
Avenue and to lots is 
imperative, as well as 
safe and pleasant

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systems, while keeping 
surface lots discrete and 
at the DTHC edges 
screened from the 
historic fabric of the 
DTHC. Surface parking 
lots should minimize the 
use of large driveways 
and conflict points with 
pedestrian walkways and 
sidewalks.  
continuous street-
wall and pedestrian 
walkability along 
the main corridor 
while allowing for 
longer-term parking 
options within and 
on the edges of the 
DTHC. 
pedestrian connections 
between Mill Ave and 
the location of these 
lots. Parking lots and 
structures should be 
designed with 
adaptability in mind to 
allow for future 
conversion if parking 
demand shifts.  
Within the DTHC 
Study Area / 
Downtown 
Tempe 
Outside the DTHC, 
prioritize the development 
and enhancement of 
strategically located 
parking hubs that provide 
ample supply to serve the 
broader Downtown. 
These facilities should be 
positioned along key 
corridors to intercept 
vehicles before they enter 
the DTHC, minimizing 
congestion and circling 
for parking. Clear, real-
time wayfinding and 
parking guidance 
systems should direct 
drivers to lots with 
available spaces, and 
shaded/well-lit pedestrian 
routes should connect 
between lots and the 
DTHC.  
 
Encourage drivers 
parking outside the 
DTHC and taking transit 
or walking into the DTHC 
by exploring options for 
lower cost or free 
connections into the 
DTHC from proximity 
parking lots to minimize 
traffic within the 
pedestrian focused areas 
of the DTHC. 
With most of the 
density and 
intensity of 
development 
already focused 
outside of the 
DTHC, there is an 
opportunity to build 
on that investment 
and utilize shared 
parking 
agreements and 
future development 
to provide well-
located and amply 
accessible parking 
within the 
Downtown that has 
great vehicular and 
bicycle 
connections.  
Intuitive ingress and 
egress that minimizes 
cut-through traffic and 
circling for parking as 
well as real-time parking 
information letting 
drivers know which lots 
have ample space 
available is necessary 
to reduce congestion 
and impacts to the 
overall Downtown and 
the DTHC.

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Mobility and Parking Policy Summary Matrix 
 
 
Policy 
Key Actions, Strategies 
Responsible 
Parties* 
Fiscal / 
Incentive 
Strategy 
Success 
Metrics 
MP 
Mobility and 
Parking 
  
  
  
  
1 
Implement 
multimodal, 
balanced 
mobility 
• Continue complete streets 
upgrades 
City 
• Transportation 
grants 
• Regional 
funding 
• Development 
impact fees 
• Parking district 
revenues 
• Public-private 
partnerships 
• Pricing 
strategies 
(demand-based) 
• Safety grants 
• Mode split 
• Safety 
indicators 
• Parking 
utilization 
• Surface lot 
percentage of 
total parking 
capacity 
• Crash 
reduction 
• Walkability 
scores 
• Emphasis on transit and bike 
improvements 
City, Private, 
Partners 
2 
Optimize 
parking 
resources 
• Expand on shared parking 
strategies for the Downtown 
to provide key concentrated 
parking just outside the DTHC 
City, Private, 
Partners 
• Reduce surface parking and 
"circling for parking" within 
the DTHC 
City, Private, 
Partners 
3 
Prioritize 
pedestrian-only 
areas 
• Enhance key pedestrian 
corridors 
City, Private, 
Partners 
• Establish clear connections 
to transit stations and parking 
areas through pedestrian-only 
areas 
City, Private, 
Partners 
 
*Responsible Parties (Typical) 
City: Planning, Economic Development, Public Works, Historic Preservation, Transportation, 
Parks & Recreation, Facilities, Sustainability 
Private: Developers, Property Owners, Businesses, Institutions 
Partners: Tribal Nations, Downtown Association, Nonprofits, Utilities, State/Federal Agencies

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IS-Infrastructure and Sustainability 
 
Context 
As Tempe navigates the challenges of a walkable Downtown in a desert 
environment, a roadmap for a resilient urban core should utilize and 
leverage the recent Downtown Refresh project on Mill Avenue as a 
baseline for future sustainability and infrastructure enhancements in the 
DTHC and Downtown. By integrating green infrastructure into rights-of-
way (or streets), the City is transforming standard roadways into high-
performance corridors that capture stormwater, filter pollutants, and 
mitigate the Urban Heat Island effect.  
 
Investments in the infrastructure and sustainability of the DTHC ensure 
that as Downtown grows vertically, its underlying infrastructure remains 
capable of supporting a cool, comfortable, and sustainable environment 
for all residents and visitors.  
Framework 
Application Area 
Recommendation(s) 
Why 
Considerations 
Within the DTHC 
(along Mill 
Avenue) 
 
Leverage the 
investments made in 
the Downtown Refresh 
to set a high bar for 
sustainable private 
development and long-
term infrastructure 
performance. 
Sustainability 
standards should be 
developed for private 
development in 
coordination with the 
Downtown Refresh. 
The Mill Avenue 
corridor through 
the DTHC has 
recently been 
upgraded through 
the Downtown 
Refresh capital 
project, and 
should be utilized 
as a new standard 
for infrastructure 
and sustainability 
improvements in 
the public realm 
throughout 
Downtown Tempe. 
While the DTHC is 
benefiting from a recent 
improvement to Mill 
Avenue, opportunities for 
additional infrastructure or 
sustainability measures or 
best practices should be 
carefully examined over 
time and implemented on 
a case-by-case basis as 
possible.  
Within the DTHC 
(not along Mill 
Avenue) 
New development and 
adaptive reuse should 
complement the public 
investments made on 
Mill Ave by integrating 
shaded frontages, 
green infrastructure, 
low-impact stormwater 
systems, and tree 
canopy extension to 
ensure that private 
development 
reinforces the DTHC 
public realm 
improvements while 
advancing long-term 
climate resilience, 
operational efficiency, 
Investment in 
infrastructure and 
sustainability in the public 
right-of-way should 
coincide with and 
leverage private 
investment to maximize 
the value of these costly 
improvements. The City of 
Tempe can seek to work 
with developers and 
property owners to share 
costs for infrastructure 
and sustainability projects 
that improve both the 
private realm and the 
public realm and provide 
a framework for efficient

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and environmental 
performance. Promote 
rooftop solar, cool 
roofs, and mitigate 
heat island impacts. 
Sustainability and 
infrastructure 
measures utilized in 
the Downtown Refresh 
should be tested and 
used throughout the 
DTHC as their use is 
proven to be effective.  
growth in Downtown 
Tempe.  
Within the DTHC 
Study Area / 
Downtown 
Tempe 
To offset the 
preservation and 
continuation of the 
DTHC, growth within 
the overall Downtown 
should prioritize 
sustainability 
measures that may not 
be available to historic 
or older buildings due 
to their construction 
type or age. Using 
incentives for pushing 
the boundaries of 
technology and 
concentrated density, 
the Downtown can 
serve as a model for a 
sustainable future-
proof desert city. 
Sustainability and 
infrastructure 
measures utilized in 
the Downtown Refresh 
should be tested and 
used throughout the 
Downtown as their use 
is proven to be 
effective.

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Infrastructure and Sustainability Policy Summary Matrix 
 
Policy 
Key Actions, Strategies 
Responsible 
Parties* 
Fiscal / 
Incentive 
Strategy 
Success 
Metrics 
IS 
Infrastructure and 
Sustainability 
  
  
  
  
1 
Ensure 
infrastructure 
supports growth 
• Coordinate utility upgrades 
with development 
City, Private 
• Development 
impact fees 
• Infrastructure 
cost-sharing 
• Bonding 
• Sustainability 
grants 
• Developer 
requirements 
• Green building 
incentives 
• Expedited 
permitting 
• Utility rebates 
• Capacity vs. 
demand 
• Service 
reliability 
• Tree canopy 
coverage and 
growth 
• Heat 
reduction 
• Stormwater 
volume 
captured 
• Energy 
performance 
• Emissions 
reduction 
• Leverage larger 
improvements to support 
small businesses and 
property owners 
City, Private 
2 
Expand green 
infrastructure and 
shade 
• Add trees, stormwater 
systems, and cooling 
strategies in the public 
realm using the Downtown 
Refresh project as a 
benchmark for 
improvements beyond Mill 
Avenue. 
City, Private 
3 
Promote 
environmental 
performance and 
resilience 
• Encourage high-
performance buildings in 
accordance with LEED best-
practices for sustainability 
City, Private 
 
*Responsible Parties (Typical) 
City: Planning, Economic Development, Public Works, Historic Preservation, Transportation, 
Parks & Recreation, Facilities, Sustainability 
Private: Developers, Property Owners, Businesses, Institutions 
Partners: Tribal Nations, Downtown Association, Nonprofits, Utilities, State/Federal Agencies

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HP-Historic Preservation 
 
Context 
Tempe’s identity is anchored by the cohesive and historic urban fabric 
present within the DTHC, a concentrated area where the city’s architectural 
and cultural evolution is showcased. Prioritizing safeguarding the remaining 
historic resources as the foundational “soul” of the City of Tempe ensures 
that this authentic sense of place remains which cannot be replaced by new 
construction. This heritage has value to Tempe’s identity and economic 
vitality. 
 
Recognizing that a land-locked city must still evolve, the strategy seeks to 
shift the focus of major change to the immediate periphery of the DTHC and 
elsewhere in the Downtown while encouraging complementary infill within 
the DTHC. Promoting contemporary design that respects the scale, 
materiality, and rhythm of its historic neighbors while avoiding mimicry will 
help to reinforce the historic assets and allow for additional economic vitality 
through infill development, redevelopment, rehabilitation, and restoration.  
 
Framework 
Application Area 
Recommendation(s) 
Why 
Considerations 
Within the DTHC 
(along Mill 
Avenue) 
 
Historic resources both 
owned and not owned 
by the City of Tempe 
should be prioritized for 
preservation, 
rehabilitation, and 
restoration. Consider 
applying to place the 
DTHC as a district on 
the NRHP, as well as 
acquiring additional 
historic resources so 
that the City can 
determine strategies for 
the preservation 
treatment of each 
resource individually. 
The development of 
design guidelines 
through this planning 
effort will provide a 
shared and transparent 
understanding of the 
baseline design 
conditions that should 
be strived for within the 
DTHC.  
Resources within the 
DTHC along Mill 
Avenue are not only 
important in their own 
right, but the context 
between the individually 
listed resources is often 
just as important. This 
context serves as the 
fabric that holds 
together the historic 
character and cohesive 
atmosphere of the 
DTHC. Storefronts and 
buildings along Mill 
Avenue serve as the 
most intact and 
consistent example of 
the history of the DTHC.  
Properties owned by 
the City or that have 
potential incentive 
strategies should 
implement façade 
conservation 
easements to protect 
the street-wall along 
Mill Avenue.  
Within the DTHC 
(not along Mill 
Avenue) 
Historic resources and 
urban patterns exist and 
continue past the Mill 
Avenue corridor to the 
east and west. While 
the historic fabric begins 
to erode at the edges of 
the DTHC, there are 
various important 
historic resources that 
have an opportunity to 
Properties within the 
DTHC that are not 
along Mill Avenue 
serve as the transition 
area between the 
most intact historic 
fabric of Downtown 
Tempe and the most 
contemporary and 
dense portions of 
Tempe. A careful

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be reconnected to the 
consistent character of 
Mill Avenue through 
careful redevelopment, 
and infill development 
that seeks to unify the 
historic character of the 
DTHC and reinforce 
existing historic 
resources.  
design of infill can 
serve to reconnect 
these properties to the 
historic fabric along 
Mill Avenue rather 
than create a wedge 
or barrier between 
important historic 
resources in proximity 
with one another.  
Within the DTHC 
Study Area / 
Downtown 
Tempe 
Consider listing 
additional City-owned 
historic resources that 
are not within the DTHC 
in the NRHP and the 
Tempe Historic 
Property Register, and 
work with private 
property owners to list 
individual resources if 
desired. Reserve the 
relocation of historic 
resources as an 
absolute last resort 
prior to demolition.  
There are a variety of 
historic resources 
outside the DTHC that 
serve as standalone 
reminders of Tempe’s 
storied past. These 
resources serve distinct 
purposes, with some 
that have been 
relocated or relocated, 
and others that have not 
seen a use change and 
still serve in their 
original capacity.  
These resources may 
not be unified by a 
shared context, but 
should still be 
celebrated and include 
potential incentives for 
preservation, 
rehabilitation, and 
restoration.

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Historic Preservation Policy Summary Matrix 
 
Policy 
Key Actions, Strategies 
Responsible 
Parties* 
Fiscal / 
Incentive 
Strategy 
Success 
Metrics 
HP 
Historic 
Preservation 
  
  
  
  
1 
Protect historic 
resources 
• Maintain a clear and easily accessible 
inventory of historic resources with a 
recurring update schedule 
City 
• Preservation 
grants 
• Tax 
incentives 
• Technical 
assistance 
• Transfer of 
Development 
Rights (TDR) 
• Historic tax 
credits 
• Revolving 
loan funds 
• Tax 
abatements 
• City 
purchase of 
historic 
resources 
• Number of 
designated 
properties 
(local and 
national) 
• Preservation 
vs. demolition 
ratio 
• Historic 
reuse rate 
• Private 
investment 
leveraged 
• Percentage of 
projects 
compliant with 
DTHC Plan 
• Total historic 
properties 
owned or 
controlled by 
City of Tempe 
• Develop a clear preservation strategy for 
City-owned historic resources or resources 
that contribute to the character of the DTHC 
City 
• Further investigate status of potentially 
eligible properties 
City 
• Pursue NRHP listing for the DTHC 
City 
• Consider additional façade conservation 
easements for City-owned properties or 
properties that are eligible for potential 
incentives 
City, Private, 
Partners 
• Undertake a public engagement process to 
inform the redevelopment of the Hayden 
Mill site 
City, Private, 
Partners 
2 
Promote 
adaptive reuse 
of historic 
assets 
• Incentivize "restoration" of key properties 
City, Partners 
• Provide technical assistance to applicants 
for preservation 
City, Partners 
• Develop a set of preservation guidelines to 
be consistently used in the crafting of 
development agreements 
City 
• Provide a pathway for ease of conversion to 
mixed-use in historic buildings 
City 
3 
Ensure 
compatible infill 
and transitions 
• Suspend physical relocation of historic 
resources within and throughout Downtown 
City 
• Utilize DTHC Plan as an advisory review 
document with design guidelines for 
building height, viewsheds, and other 
historic compatibility elements 
City, Private, 
Partners 
4 
Strengthen 
preservation 
incentives and 
tools 
• Encourage City purchases of historic 
properties when feasible 
City 
• Explore the adoption of Transfer of 
Development Rights regulatory frameworks 
both within sites and between sites 
City 
*Responsible Parties (Typical) 
City: Planning, Economic Development, Public Works, Historic Preservation, Transportation, Parks 
& Recreation, Facilities, Sustainability 
Private: Developers, Property Owners, Businesses, Institutions 
Partners: Tribal Nations, Downtown Association, Nonprofits, Utilities, State/Federal Agencies

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The following section is not fully drafted, and is only included for reference:  
Fiscal Feasibility & Incentive Strategy 
The success of this plan depends not only on clear policies and action items, but on a realistic 
path to implementation. Translating the plan’s vision into an actionable investment framework 
requires aligning market conditions, public financing tools, and private development capacity 
with the community’s goals for growth, preservation, and placemaking. 
By pairing policy direction with financial strategy, the City of Tempe can prioritize projects, 
sequence investments, and leverage private capital effectively. The result should be a 
coordinated approach that ensures Downtown improvements are both aspirational and working 
to advance long-term economic resilience. 
Public Investment Priorities 
● Target infrastructure and streetscape funding in catalyst growth areas 
● Invest in preservation-supportive public realm improvements 
● Use CIP to unlock redevelopment and adaptive reuse 
Key Funding Tools 
● Development impact fees and infrastructure cost-sharing 
● Parking district and user-based revenue 
● Public-private partnerships (P3): Partner with property owners, ASU, and major 
employers for corridor enhancements and activation. 
● Grants (federal/state preservation, transportation, sustainability) 
● Bonds or capital financing for major infrastructure 
● Voluntary Public Art Contributions: Encourage developers to contribute through incentive 
programs 
● Business Improvement District (if supported by property owners): Self-assessment 
model rather than City-imposed requirement. 
● Tourism & Event Revenue Allocation: Leverage hotel/motel tax or event-based revenue 
for cultural programming and streetscape improvements. 
● Philanthropic & Corporate Sponsorships: Strong opportunity in Tempe given university 
and corporate presence. 
● Programming Revenue + Permit Fees: Event permits, market fees, and activation 
licensing can help fund ongoing cultural programming. 
Development & Preservation Incentives 
● Density/intensity bonuses tied to preservation outcomes 
● Historic rehabilitation tax credits and façade grants 
● Fee reductions and expedited review for adaptive reuse

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● Transfer of Development Rights (TDR) or preservation bonuses 
● Small business and tenant improvement support 
Financial Performance Monitoring 
● Private investment leveraged per public dollar 
● Redevelopment value in catalyst areas 
● Preservation investment levels 
● Infrastructure cost recovery over time 
Non-Financial Performance Monitoring 
● Foot Traffic & Dwell Time 
● Public Space Utilization 
● Business & Cultural Vitality 
● Mobility & Access 
● Community Perception

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Chapter 5. Design Guidelines 
 
INTRODUCTION 
 
The Downtown Tempe Historic Core is the heart of Tempe. It is a part of the ancestral 
homelands of the O’odham and Piipaash peoples, where the city’s early commercial 
development began, where historic buildings and long-standing local businesses are 
concentrated, and where civic life, Arizona State University, and tourism converge. As 
Downtown Tempe continues to grow and redevelop, the Historic Core must evolve in a way that 
protects its unique characteristics while accommodating thoughtful growth. 
 
These Design Guidelines establish a clear and predictable framework for new development, 
additions, adaptive reuse, and significant renovations within the Downtown Tempe Historic Core 
(map for reference is located on page 5). They clarify expectations for height, massing, 
architecture, ground floor design, public realm improvements, and transitions to nearby districts. 
The intent is not to freeze the district in time, nor to require copying historic architecture, but to 
ensure that as change occurs it reinforces experiences that make the Historic Core distinctive. 
 
Collectively, these guidelines attempt to balance three priorities: 
• 
Preserving the historic street-wall and fine-grained character of Mill Avenue 
• 
Supporting economic vitality and reinvestment 
• 
Enhancing pedestrian comfort and climate resilience in a desert environment 
 
The goal is a framework, encouraged through incentives discussed in Chapter 4 of the plan, that 
respects history while still enabling high-quality contemporary development. 
 
1.1 Purpose and Intent 
The Historic Core functions as both a destination and a connector. It is an anchor for Downtown 
retail and entertainment activity, connects Arizona State University to Tempe Town Lake, and 
serves as a civic gathering place for residents and visitors. It is defined by mostly lower building 
heights, narrow storefronts, masonry facades, and active sidewalks. 
 
While surrounding areas accommodate taller and more contemporary buildings, the Historic 
Core provides continuity and human scale. Yet development pressure on the Historic Core is 
strong and several new additions are out of context. The Historic Core should not compete with 
adjacent high-rise districts, but should offer a walkable, people-friendly environment that 
supports local businesses, cultural events, and everyday needs. 
 
These guidelines reinforce that role by protecting the pedestrian-oriented fabric of Mill Avenue 
and the larger Historic Core while allowing additional height and density in strategic locations.

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1.2 Guiding Principles 
These guidelines are grounded in several guiding principles that shape the subsequent 
sections: 
 
Respect the Historic Street-Wall. 
Maintain the integrity of the remaining traditional 
two- to three-story building height along Mill Avenue 
and reinforce the continuity of storefronts and 
facades that define the corridor. 
 
 
Accommodate Growth Strategically. 
Allow additional height and density where it can be 
integrated without overwhelming the pedestrian 
scale, particularly in gateway and edge locations. 
 
 
 
 
Prioritize the Public Realm. 
Design buildings and streets to be in harmony. 
Shade, landscaping, lighting, and ground floor 
transparency are as important as the architecture 
itself. 
 
 
 
 
Encourage Authentic Contemporary Design. 
New development should be “of its time” while 
remaining compatible in scale, proportion, and 
materials with its historic context. Avoid mimicry of 
historical architecture as compatibility and imitation 
are not the same.  
 
 
 
Design for Climate. 
Because of Tempe’s Sonoran Desert climate; shade, 
durable materials, and appropriate drought-tolerant 
landscaping are fundamental urban design elements, 
not optional amenities.

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2. HISTORIC CORE CHARACTER FRAMEWORK 
The Historic Core is defined by a unique physical and experiential character. Its short blocks, 
masonry facades, narrow storefronts, and active sidewalks create a place that is distinct within 
Tempe. As reinvestment and redevelopment occur, this framework provides an understanding 
of what defines the Historic Core and how new development should respond. 
 
Rather than relying only on strict height limits or use regulations, this framework attempts to 
articulate the scale, proportions, materials, and public realm qualities of the Historic Core. It 
describes where preservation of historic scale is imperative and where additional density can be 
accommodated without undermining the Historic Core’s identity. 
 
2.1 Defining the Historic Core  
The Historic Core is centered on Mill Avenue and the surrounding blocks that form Tempe’s 
original commercial district. Its defining features include: 
• 
A consistent two- to three-story street-wall along Mill Avenue 
• 
Narrow storefronts that create a fine-grained facade pattern 
• 
Buildings constructed to the sidewalk with no significant setbacks 
• 
Masonry-based materials and articulated building parapets 
• 
Highly active ground floors with transparent storefronts 
• 
A pedestrian-oriented environment made comfortable by shade and street trees 
The district’s visual experience is based on the consistent alignment of cornice lines, storefront 
heights, sidewalk edges, and building frontages. Even where the architecture varies, this 
consistency of proportions creates visual continuity. 
 
The Historic Core also feels intimate and walkable. Most buildings frame the street without 
overwhelming it. Shade, signage, and outdoor dining contribute to visual interest, and the 
character is urban and historic while remaining approachable. 
 
These definitions establish a clear baseline for the Design Guidelines: new development should 
reinforce the established scale and relationships that gives Mill Avenue and the Historic Core its 
unique identity. 
 
2.2 Sub-Areas within the Historic Core 
While the Historic Core mostly functions as a cohesive district, it contains two distinct areas: Mill 
Avenue and the Historic Core Edge. 
 
Mill Avenue 
Mill Avenue is the primary spine of the Historic Core. It has the highest pedestrian volumes, the 
greatest concentration of historic structures, and it defines the district’s identity. 
 
Development along Mill Avenue should prioritize continuity of the traditional street-wall and 
storefront rhythm. An established height datum, generally two to three stories and in line with

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the Tempe Hardware Building, should be evident, even where additional height is 
accommodated through building step-backs. Ground floors should remain highly transparent 
and active, reinforcing the corridor’s retail and entertainment function. 
 
The primary emphasis within this sub-area is the preservation of both architectural and 
pedestrian scale. New buildings should feel like part of a consistent experience and contribute 
to a continuous street edge that frames the public realm. 
 
Historic Core Edge 
The Historic Core Edge includes all properties within the district boundary that do not front 
directly on Mill Avenue. These areas allow for accommodating additional height, density, and 
mixed-use development that supports the vibrancy of the Core. 
 
Because these blocks often include larger parcels, they can accommodate a wider variety of 
building massing and vertical articulation. However, development should still respect nearby 
historic buildings and maintain strong, beautiful pedestrian connections to Mill Avenue. 
 
The Edge sub-area also functions as a transition zone between the intimate scale of Mill 
Avenue and the larger-scale development patterns around Downtown. Height increases and 
contemporary architecture may be appropriate here, assuming that base conditions, step-backs, 
and a high-quality public realm maintain compatibility with the overall Historic Core character. 
 
 
2.2 Historic Preservation 
The fundamental basis for the Treatment of Historic resources starts with the Secretary of the 
Interior Standards for the Treatment of Historic Properties. Contained within that are three 
primary acceptable treatments:  
• 
Preservation, wherein a resource retains its original form and use and needs maintenance, 
repair, and/or like-for-like replacement of building elements.  
• 
Rehabilitation, wherein a resource is subject to a new use with contemporary requirements 
that require internal adaptations. In this treatment, sometime referred to as “adaptive re-
use”, the historic characteristics of the building’s exterior is maintained, but the interior is 
(clearly) modified to accommodate the new use.  
• 
Restoration, wherein a building has been modified over time with alterations to its 
character-defining elements. Restoration seeks to return a building back to a specific point 
in time removing inappropriate alterations and additions. This treatment demands the 
availability of very accurate documentation so that the restoration is not conjectural.   
 
Each of these treatments is itself the subject of other Secretary of the Interior Standards and 
functions as a baseline for quality historic preservation work.  
 
The DTHC has examples of properties that might benefit from one or the other of these 
treatments. For example:

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• 
Preservation. The Andre Building has virtually all of its character-defining features intact 
and needs some careful preservation work on the north elevation to repair and or replace 
deteriorated masonry brick at the upper level.  
• 
Rehabilitation. The Hayden Mill, owned by the City of Tempe, will not become a flour mill 
again. But the strong bones of the lower structure can be rehabilitated for new interior uses 
to serve the vibrant contemporary needs of Mill Avenue.   
• 
Restoration. The City of Tempe has ownership of the Tempe National Bank. That structure 
has been dramatically changed over the years. If there is there sufficient documentation 
available to restore the original character-defining features of the building, perhaps it could 
be restored for a new and exciting use.  
 
Using the Secretary of the Interior’s Standards as a base, additional design guidelines may be 
considered for specific historic properties dependent on owner interest. The most critical 
properties to the future coherence of the core character of the DTHC are on the eastern side of 
Mill Avenue.  
• 
That includes the Hayden Mill property, currently owned by the City of Tempe. A detailed 
historic report has been prepared and should inform the future development of this site. The 
rehabilitation this property should work closely with the Reservation staff of the City of 
Tempe and the Tempe Historic Preservation Commission. This site is a critical anchor the 
Mill Avenue District. It also adjoins the Tempe Butte. Viewsheds to the Butte must be 
maintained at the southern end of the site, between the Mill structure and the adjacent 
property to the south.  
• 
It also includes the two Mill Avenue frontage properties, both of which are at-grade asphalt 
parking lots owned by Mission Palms.  It is imperative that the height of these two properties 
is three stories or less for the first 100’ back from Mill Avenue, with gaps that open a 
viewshed back to Tempe Butte. Negotiations and collaboration with the owner to protect the 
rights of their economic value needs to be carefully crafted to preserve the historic character 
of this north end of Mill. 
 
There are other properties whose development is critical to the DTHC. As a base design 
guideline, historic properties fronting on Mill should seek to provide character contribution to the 
Downtown Historic Core - for example the Vienna Bakery and the Garfield Goodwin Building. In 
the periphery behind Mill Avenue, the integrity of individual buildings takes precedence – for 
example Hackett House, Harrington Birchett House, and the Governor Benjamin B. Moeur 
House. The latter examples away from Mill Avenue can more easily accommodate compatible 
adjacent development of different scale and character.  
 
Finally, the guidelines extend to historic resources that are still undiscovered and/or 
unrecognized. The buildings of Old Towne Square should no longer remain in preservation 
limbo and be recognized for their intrinsic historic character, even in their relocated state. 
Similarly, there are other unrecognized buildings that deserve further investigation including the 
Sunbar Building on West 5th and the single-story buildings at 607 South Mill (Casa and Cue 
Club).

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3. BUILDING HEIGHT AND MASSING (Incorporates updates to Building Height Concept 
Study) 
This section establishes a height and massing framework that respects Mill Avenue’s historic 
street-wall character while accommodating additional density in appropriate locations. It defines 
clear guidance for base building heights, step-back requirements, and high-rise towers to 
ensure new development reinforces the pedestrian scale, protects key views, and transitions 
sensitively to adjacent neighborhoods and civic spaces. The goal of this section is to balance 
growth with continuity in scale and urban form. 
 
3.1 Height Strategy 
Objective: Reinforce Mill Avenue’s historic street-wall and human scale by establishing a 
consistent building height, while directing additional height and development intensity to 
appropriate district transition and gateway locations. 
 
Guidelines: The Historic Core’s identity is defined by its 2- to 3-story historic street-wall. New 
developments should strive to remain consistent with this height while designing taller building 
elements to preserve pedestrian scale and key views. 
A. New construction along Mill Avenue should align the primary facade within ±3 
feet of adjacent historic cornice lines where present. 
B. Establish a primary street-wall along Mill Avenue between 28 and 36 feet, 
reflecting the height of key historic buildings such as the Hardware Building. 
C. Maintain a strong build-to condition, with at least 70 percent of the frontage 
located at the back of sidewalk (0’ setback). 
D. Building heights exceeding 60 feet are more compatible at transition and 
gateway areas near 7th Street and Rio Salado Parkway. 
E. Encourage additional height above base limits with the provision of enhanced 
public benefits, such as publicly accessible open space, additional shade 
infrastructure, public art, or cultural amenities. 
F. Encourage additional height only where upper stories are clearly secondary to 
the established historic building heights through step-backs or other building 
articulation.

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3.2 Height Zones 
Objective: Provide predictable and context-sensitive height limits that protect the historic Mill 
Avenue spine while accommodating denser development in appropriate areas. A map is located 
on the following page. 
 
Guidelines: Height zones establish a base height that reinforces the pedestrian scale and a 
maximum height that reflects the location within the Historic Core. 
Mill Avenue (120 feet from the center line of Mill Avenue) 
• 
Base height: 28–36 feet (approximately 2–3 stories). 
• 
Maximum height: 65 feet, subject to required step-backs. 
• 
Any height above 36 feet should be stepped back a minimum of 15 feet from the 
primary facade. 
Secondary Streets within the Historic Core 
• 
Base height: 36–45 feet. 
• 
Maximum height: 50-100 
• 
 feet. 
• 
Any height above 45 feet should be stepped back a minimum of 15 feet from the 
primary facade. 
Gateway and Transition Areas (7th Street and Rio Salado Parkway) 
• 
Base height: 45–60 feet. 
• 
Maximum height: 90–120 feet, depending on location and context. 
• 
Projects exceeding 90 feet should provide enhanced step-backs, tower 
separation where applicable, and shadow analysis demonstrating minimal impact 
on Mill Avenue sidewalks. 
Historic Adjacency Areas 
• 
Within 25 feet of or adjacent to a designated historic structure, new construction 
should not exceed the adjacent historic building height at the street-wall. 
• 
When historic buildings are located with two street facades or a corner 
intersection, the adjacent new construction should allow alternate height that is 
compatible as a drop-back to the historic building, but respects the street-facing 
façade elements at the pedestrian scale.

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3.3 Step-backs and Upper-Level Articulation 
Objective: Ensure upper stories are secondary to the historic street-wall and prevent a canyon-
like condition along Mill Avenue. 
 
Guidelines: Step-backs should be meaningful in dimension and proportion. 
A. Along Mill Avenue, provide a minimum 15-foot step-back above 36 feet in height. 
B. For buildings exceeding 65 feet, provide an additional 5-foot step-back for every 
additional 15 feet of height. 
C. Step-backs should extend along at least 80 percent of the primary street 
frontage. 
D. Upper levels should incorporate vertical facade articulation at intervals not 
exceeding 30 feet. 
E. Balconies, terraces, and material changes are encouraged within step-back 
zones to further reduce perceived bulk. 
F. Rooftop mechanical equipment should be screened and set back at least 15 feet 
from primary facades. 
 
3.4 Massing and Facade Rhythm 
Objective: Reinforce the fine-grained pattern of historic buildings and prevent monolithic 
building forms. 
 
Guidelines: Buildings should visually reflect traditional storefront widths and vertical 
proportions. 
A. Divide facades along all streets into modules between 20 and 40 feet in width. 
B. Provide vertical articulation, such as pilasters, recesses, or material shifts, at 
intervals not exceeding 30 feet. 
C. Ground floor heights along Mill Avenue should be a minimum of 14 feet floor-to-
floor to support retail activity and remain consistent with historic storefronts. 
D. Buildings longer than 150 feet should incorporate horizontal articulation of at 
least 5 feet in depth at intervals of 75 feet. 
E. Avoid uninterrupted horizontal spandrels or continuous glazing across multiple 
storefront modules.

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3.5 View Corridor Preservation 
Objective: Protect and frame significant views to Tempe Butte and Tempe Town Lake while 
allowing contextual development. 
 
Guidelines: Development should demonstrate preservation of identified public view corridors. 
A. Maintain view corridors along east-west streets including 2nd Street, 3rd Street, 
and 5th Street. 
B. Avoid obstructing direct eastern views toward Tempe Butte from Mill Avenue 
intersections, particularly at 2nd Street and 3rd Street. 
C. Buildings above 75 feet should provide tower separation of at least 40 feet where 
aligned with protected view corridors. 
D. Submit view analysis, including photographic simulations, for projects exceeding 
65 feet.

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4. GROUND FLOOR AND PEDESTRIAN ENTRIES 
The Historic Core’s vibrancy depends on an active, transparent, and engaging ground floor 
experience. This section sets expectations for storefront design, pedestrian-oriented uses, 
facade articulation, and shading strategies that reinforce Mill Avenue’s active retail. Guidelines 
emphasize human scale, visual permeability, and climate-responsive design to strengthen the 
public realm and support year-round activity. 
 
4.1 Ground Floor Activation Standards 
Objective: Ground floors should contribute to a vibrant, pedestrian-oriented environment 
consistent with Mill Avenue’s historic retail character. 
 
Guidelines: Ground floors should prioritize transparency, active use, and pedestrian access. 
A. Encourage active commercial or community-serving uses along at least 80 
percent of Mill Avenue frontage. 
B. Provide a minimum of 65 percent transparency between 2 and 10 feet above 
sidewalk grade. 
C. Provide pedestrian entries at intervals not exceeding 50 feet along Mill Avenue. 
D. Prohibit blank walls exceeding 15 feet in width. 
E. Limit finished floor elevation to no more than 18 inches above sidewalk grade.

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4.2 Storefront Design 
Objective: Reinforce traditional storefront proportions that enhance the pedestrian experience. 
 
Guidelines: Storefronts should provide depth, shading, and high-quality detailing. 
A. Provide recessed entries with a minimum depth of 3 feet. 
B. Integrate fixed shade projections extending at least 6 feet over the pedestrian 
zone. 
C. Use durable base materials (masonry, stone, etc.) to a height of at least 3 feet 
above grade. 
D. Limit storefront bay width to 40 feet without a vertical division. 
E. Encourage operable glazing systems that strengthen indoor-outdoor 
relationships. 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
4.3 Outdoor Dining and Retail Zones 
Objective: Support Mill Avenue’s active street life through thoughtfully integrated outdoor 
spaces. 
 
Guidelines: Outdoor areas should maintain pedestrian flow (as per City code) while enhancing 
vibrancy. 
A. Maintain a minimum 8-foot-wide clear pedestrian travel zone. 
B. Provide shade covering at least 75 percent of patio seating areas, whether 
through shade trees or structural shade canopies and awnings. 
C. Limit patio enclosures to 42 inches in height and ensure visual permeability. 
D. Coordinate furniture and materials with overall Historic Core character. 
E. Avoid permanent enclosures that compromise sidewalk continuity.

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5. SHADE AND CLIMATE RESPONSIVE DESIGN 
Given Tempe’s desert climate, shade and pedestrian comfort are fundamental urban design 
priorities. This section outlines strategies for sidewalks, tree canopy, furnishings, lighting, and 
street activation that enhance walkability and reinforce the Historic Core’s identity. Guidelines 
focus on continuous shade coverage, consistent material palettes, and the integration of 
infrastructure to create a resilient, comfortable, and unified streetscape. 
 
5.1 Continuous Shade Strategy 
Objective: Provide continuous and measurable pedestrian shade to support year-round 
comfort. 
 
Guidelines:  
A. Achieve at least 75 percent shade coverage of sidewalks between 10:00 a.m. 
and 4:00 p.m. during summer solstice conditions with closely spaced trees and 
architectural shade strategies. 
B. Supplement tree canopy with architectural shade strategies where necessary. 
C. Prioritize shade at intersections, transit stops, and high-activity nodes. 
 
5.2 Architectural Shade 
Objective: Reduce heat gain and enhance facade performance through integrated shading 
elements. 
 
Guidelines:  
A. Shade at least 80 percent of west-facing facade glazing. 
B. Provide horizontal shade projections of at least 4 feet on south-facing facades. 
C. Incorporate vertical fins or screens on west-facing facades. 
D. Shade all primary building entrances.

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5.3 Heat Mitigation and Materials 
Objective: Minimize urban heat island effects and improve microclimate conditions. 
 
Guidelines:  
A. Use paving materials with solar reflectance values appropriate for desert 
environments. 
B. Provide minimum 40 percent tree canopy coverage in plazas within 10 years of 
planting. 
C. Avoid mirrored or highly reflective materials at pedestrian level. 
D. Integrate drought-tolerant, low-water-use landscaping. 
 
6. ARCHITECTURAL MATERIALS  
This section establishes a contextually appropriate material palette that reflects the Historic 
Core’s exposed brick-based character while allowing contemporary architectural additions. 
Emphasize authenticity, permanence, and craftsmanship at the pedestrian level. The guidelines 
ensure new buildings contribute to a consistent district identity without resorting to imitation or 
superficial historic detailing. 
 
6.1 Appropriate Material Palette 
Objective: New development should reinforce the Historic Core’s sense of permanence, 
craftsmanship, and authenticity through durable, contextually appropriate materials. 
 
Guidelines: Materials should reflect the masonry-rich character of Mill Avenue while allowing 
for contemporary interpretation. 
A. Primary street-facing facades along Mill Avenue should consist of at least 70 
percent durable materials, including brick, textured concrete, stone, metal panel, 
or precast concrete. 
B. Limit EIFS or synthetic stucco to upper stories above the primary street-wall and 
not more than 30 percent of any facade facing Mill Avenue. 
C. Prohibit mirrored or highly reflective glass at ground level. 
D. Use masonry, stone, or concrete base materials to a minimum height of 3 feet 
above grade along primary facades. 
E. Encourage material changes at facade articulation points to reinforce vertical 
storefront rhythm. 
F. In gateway zones, contemporary curtain wall systems may be compatible above 
the base height, provided the lower three stories reflect Historic Core material 
guidelines.

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6.2 Contemporary Design in a Historic Context 
Objective: Encourage architectural innovation that respects historic scale and rhythm without 
replicating historic styles. 
 
Guidelines: Compatibility is measured through proportion, scale, and alignment rather than 
imitation. 
A. Align new buildings with adjacent historic cornice lines within ±3 feet where 
applicable. 
B. Maintain window-to-wall proportions consistent with traditional storefronts 
(vertically oriented openings are preferred). 
C. Avoid faux-historic detailing or applied ornaments that are not integral to building 
structure. 
D. Clearly differentiate new construction from historic buildings through subtle 
material or detailing changes. 
E. Rooftop additions to historic structures should be visually subordinate and step-
back a minimum of 10 feet from the historic facade plane. 
 
 
 
 
 
 
 
 
 
 
 
 
6.3 Base / Middle / Top Composition 
Objective: Maintain coherent building proportions and reinforce the pedestrian-scale at the 
street. 
 
Guidelines: Buildings should express a clear vertical hierarchy. 
A. Provide a defined base equal to at least one full story or 14 feet in height along 
Mill Avenue. 
B. Reinforce the historic street-wall (28–36 feet) through a horizontal articulation, 
cornice, or material transition. 
C. Articulate upper stories with recesses, balconies, or material variation at intervals 
not exceeding 30 feet. 
D. Provide a distinct top expression through parapets, roofline modulation, or 
material differentiation. 
E. Screen rooftop mechanical equipment fully from public view and set back a 
minimum of 15 feet from primary facades.

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7. OPEN SPACE AND PUBLIC REALM  
A network of plazas, paseos, landscaped corridors, and activated alleys strengthens the Historic 
Core in addition to individual buildings. This section clarifies expectations for publicly accessible 
open space, mid-block connectivity, and urban forest expansion to enhance pedestrian comfort 
and climate resilience. The intent is to extend the public realm vertically and horizontally, 
integrating development with meaningful public space. 
 
7.1 Plazas and Pocket Parks 
Objective: Encourage small-scale, flexible gathering spaces that enhance social activity and 
reinforce pedestrian life within the Historic Core. 
 
Guidelines: Open spaces should be integrated with surrounding development and shaded for 
comfort. 
A. Projects greater than 1 acre should provide a minimum of 1,000 square feet of 
publicly accessible open space. 
B. Provide seating at a recommended ratio of 1 linear foot per 30 square feet of 
plaza area. 
C. Provide shade coverage over at least 60 percent of seating areas, through trees 
or architectural shade. 
D. Maintain clear sightlines across plazas to promote safety and visibility. 
E. Activate plaza edges with retail, dining, or community-serving uses along at least 
50 percent of the perimeter.

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7.2 Connections to Major Downtown Anchors 
Objective: Strengthen pedestrian linkages between the Historic Core and major civic and 
cultural destinations. 
 
Guidelines: Connections should be intuitive, shaded, and consistent in character. 
A. Provide mid-block paseos, consistent with the developed pattern, with a 
minimum clear width of 12 feet when used as public connections. 
B. Align new pedestrian pathways with key destinations, including City Hall Plaza 
and Tempe Town Lake. 
C. Integrate paving treatments consistent with primary streets to visually reinforce 
key pedestrian routes. 
D. Provide directional wayfinding signage at major intersections and mid-block 
connections. 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
7.3 Landscape and Urban Forest 
Objective: Expand the urban forest to support pedestrian comfort and long-term climate 
resiliency. 
 
Guidelines: Landscape design should be coordinated with shade, utilities, and pedestrian 
circulation. 
A. Provide a minimum of 600 cubic feet of soil volume per street tree, or a 
connected structural soil system below grade. 
B. Target 50 percent canopy coverage in the DTHC within 15 years. 
C. Use drought-tolerant and heat-resilient species appropriate for desert conditions 
from the plant palette in the Character Area 3 Design Guidelines.  
D. Consolidate utilities to maximize continuous planting zones. 
E. Avoid planting strategies that obstruct storefront visibility.

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7.4 Alleys and Mid-Block Connectivity 
Objective: Transform alleys into activated secondary spaces that support pedestrian movement 
and small-scale programming. 
 
Guidelines: Alleys should be safe, well-lit, and integrated with the overall Historic Core district. 
A. In alleys prioritized for pedestrian use, limit vehicular travel lanes to 10–12 feet 
and encourage shared-space design. 
B. Install pedestrian-scale lighting fixtures between 12 and 16 feet in height, spaced 
approximately 40 feet on center. 
C. Screen loading and service functions with architectural treatments consistent with 
primary facades. 
D. Encourage small-scale retail, art installations, or performance areas in wider alley 
segments. 
 
8. PARKING AND SERVICE  
To maintain a pedestrian-priority environment, parking and service functions should be carefully 
integrated and visually subordinate. This section provides direction on the location, screening, 
access, and lighting of parking and loading areas to minimize conflicts with pedestrians and 
protect the character of Mill Avenue. The goal is to accommodate the necessary infrastructure 
without compromising street activation or architectural quality. 
 
8.1 Parking Location and Screening 
Objective: Minimize the visual impact of parking and prevent disruption of the pedestrian 
experience. 
 
Guidelines: Parking should be secondary to active frontage and largely invisible from primary 
streets. 
A. Discourage new surface parking lots along Mill Avenue. 
B. Locate parking behind buildings, underground, or within structured facilities. 
C. Screen structured parking with active uses along at least 50 percent of primary 
street frontage. 
D. Utilize design treatments to shield headlights from adjacent properties and public 
spaces. 
E. Screen loading and service areas from view with materials consistent with the 
primary building. 
 
8.2 Parking Access 
Objective: Reduce curb cuts and vehicular conflicts along pedestrian-priority streets. 
 
Guidelines: Access points should be consolidated and located away from primary retail 
frontages. 
A. Locate vehicular access from alleys wherever feasible. 
B. Maintain a minimum spacing of 100 feet between curb cuts along primary streets.

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C. Limit driveway widths to 24 feet maximum where possible. 
D. Design driveways with enhanced pedestrian crossings, including contrasting 
paving materials. 
E. Discourage any new curb cuts or driveways along Mill Avenue.  
 
8.3 Lighting  
Objective: Provide safe, pedestrian-scaled lighting that enhances architectural character 
without excessive glare. 
 
Guidelines: Lighting should reinforce the Historic Core identity. 
A. Use pedestrian-scale fixtures appropriate for a historic district between 12 and 16 
feet in height along sidewalks. 
B. Avoid high-intensity floodlighting along primary frontages. 
C. Integrate accent lighting to highlight architectural details and public spaces. 
D. Ensure lighting levels are adequate for safety while minimizing spillover into 
adjacent residential areas. 
 
 
 
 
 
 
 
 
 
 
 
9. GATEWAYS AND TRANSITIONS 
The Historic Core is defined not only by its center but also by how it connects to surrounding 
districts, Tempe Town Lake, and Arizona State University. This section establishes expectations 
for gateway sites and transition areas where additional height and intensity may be appropriate. 
The guidelines ensure these locations communicate arrival, frame key views, and minimize 
scale changes while reinforcing the identity and continuity of the Historic Core. 
 
9.1 7th Street Gateway 
Objective: Mark the southern entry into the Historic Core with a transition in scale and character 
that signals arrival. 
 
Guidelines: Gateway buildings should provide a transition between lower-scale historic areas 
and emerging mid- and high-rise development. 
A. The transitioning of higher allowed height at the intersection of Mill Avenue and 
University Drive, with building façade step backs reaching typical building heights 
of 15-25 stories. Then transition into the gateway south of 6th Street. 
B. Allow base heights between 45 and 60 feet, with step-backs above that level.

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C. Incorporate enhanced streetscape elements, including wider sidewalks where 
feasible. 
D. Emphasize architectural detail at corners to frame views north along Mill Avenue. 
E. Provide shade coverage consistent with Mill Avenue standards. 
 
9.2 Rio Salado / Tempe Town Lake Gateway 
Objective: Create a visually distinct northern gateway that connects the Historic Core to the 
lakefront while preserving landmark views. 
 
Guidelines: Gateway buildings may accommodate additional height with careful massing and 
detailing. 
A. Allow heights up to 120 feet where tower floor plates above 90 feet do not 
exceed 12,000 square feet. 
B. Provide tower separation of at least 40 feet where multiple towers are present. 
C. Step-back upper floors to preserve pedestrian scale at street level. 
D. Frame views toward Tempe Butte and the lake. 
E. Integrate publicly accessible open space at the base where feasible. 
 
 
10. DESIGN GUIDELINES IMPLEMENTATION 
The Historic Core Design Guidelines are intended to encourage and inspire high-quality 
development rather than function as mandatory regulatory controls. They describe a vision for 
how the district should evolve, providing clarity for property owners, developers, staff, and 
decision-makers about desired physical outcomes. 
 
Compliance with these guidelines is voluntary. Alignment with the framework will be encouraged 
through a coordinated package of incentives that are being developed as part of the broader 
Historic Core Plan. The intent is to reward projects that meaningfully advance district priorities 
such as pedestrian scale, shade performance, public realm enhancement, and architectural 
quality rather than impose prescriptive regulations. 
 
10.1 Relationship with Zoning and Overlay District 
These Design Guidelines do not replace or override existing zoning regulations. Zoning 
continues to regulate land use, baseline height, density, and other entitlements. The Historic 
Core Standards operate as a companion framework, to both the City Code and Downtown 
Design Guidelines, that describes preferred design outcomes within the district. 
 
Projects that demonstrate substantial alignment with the Historic Core vision may receive 
consideration for regulatory flexibility, enhanced development capacity, or other benefits as 
defined in other sections of this plan. 
 
10.2 Development Review Guidance 
Although voluntary, the guidelines provide a clear structure for evaluating how proposed 
projects contribute to the Historic Core district’s character. Applicants are encouraged to

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reference the framework early in the design process and to demonstrate how their proposals 
reinforce key priorities such as: 
• 
Preservation of the Mill Avenue street-wall 
• 
Pedestrian-oriented ground floor  
• 
High-performance shade and climate-responsive design 
• 
Thoughtful height transitions and massing strategies 
• 
Durable, contextually appropriate materials 
 
Documentation may include context analysis, massing studies, shade diagrams, or public realm 
plans where applicable. Early coordination with City staff is strongly encouraged to identify 
potential incentive pathways and to align project design with district goals. 
 
10.3 Incentives and Flexibility 
Because the guidelines are voluntary, implementation will rely on a transparent incentive 
framework. The city is developing a suite of tools that may include height bonuses, density 
flexibility, expedited review, fee considerations, or other development advantages for projects 
that advance Historic Core objectives. 
 
Incentives may be tied to measurable public benefits such as: 
• 
Historic resources rehabilitated and/or preserved 
• 
Enhanced publicly accessible open space 
• 
Expanded shade coverage beyond baseline expectations 
• 
Affordable or locally serving commercial space 
• 
Cultural or community-serving amenities 
• 
Improved pedestrian connectivity

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Appendices 
 
This Plan will be supported by a comprehensive Appendix that compiles detailed 
documentation, technical studies, background data, and other reference materials that inform its 
recommendations. The Appendix is intended to provide transparency and depth, offering the 
analytical foundation behind the policies, maps, and strategies presented in the main document. 
Throughout the Plan, readers will find references to specific appendix materials for additional 
detail and context. 
● Community engagement summary 
● Existing conditions analysis 
● Market analysis 
● Historic resources inventory 
● Glossary