COMMERCIAL REHABILITATION WITHIN THE CENTRAL BUSINESS DISTRICT: POLICIES FOR FUTURE USE by SANDRA EILEEN WOOD B.A., U n i v e r s i t y of B r i t i s h Columbia, 1964 A THESIS SUBMITTED IN PARTIAL FULFILMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS i n the D i v i s i o n of COMMUNITY AND REGIONAL PLANNING We accept t h i s t h e s i s as conforming to the re q u i r e d standard THE UNIVERSITY OF BRITISH COLUMBIA A p r i l , 1967 In p r e s e n t i n g t h i s t h e s i s i n p a r t i a l f u l f i l m e n t o f the r e q u i r e m e n t s f o r an advanced degree a t the U n i v e r s i t y o f B r i t i s h C o l u m b i a , I agree t h a t t he L i b r a r y s h a l l make i t f r e e l y a v a i l a b l e f o r r e f e r e n c e and st u d y , I f u r t h e r agree t h a t p e r m i s s i o n f o r e x t e n s i v e c o p y i n g o f t h i s t h e s i s f o r s c h o l a r l y p u r p o s e s may be g r a n t e d by the Head o f my Department o r by h i s r e p r e s e n t a t i v e s . I t i s u n d e r s t o o d t h a t c o p y i n g o r p u b l i c a t i o n o f t h i s t h e s i s f o r f i n a n c i a l g a i n s h a l l not be a l l o w e d w i t h o u t my w r i t t e n pe rrn i ss i on , Department o f Community and Regional Planning The U n i v e r s i t y o f B r i t i s h C o l u m b i a Vancouver 8, Canada Date A p r i l , 1967. Vi ABSTRACT W i t h i n the c e n t r a l business d i s t r i c t s of many North American c i t i e s are to be found b l i g h t e d commercial areas which have d e t e r i o r a t e d through the process of time, market changes, and l o c a t i o n a l obsolescence. Old b u i l d i n g s , some b e a u t i f u l , are l e f t to d e t e r i o r a t e or are t o r n down and replaced by c h a r a c t e r l e s s new facades i n an attempt to compete w i t h the i n t e g r a t e d 'shopping center' approach. Such changes do not make a c i t y . In recent years a number of c i t i e s have u t i l i z e d r e h a b i l i t a t i o n techniques i n an attempt t o r e v i t a l i z e b l i g h t e d commercial areas. R e h a b i l i t a t i o n may be broa d l y defined as remodeling, a l t e r i n g , r e p a i r i n g and otherwise improving substandard, d e t e r i o r a t e d , or obsolete areas, or i n d i v i d u a l s t r u c t u r e s w i t h i n these areas so that a decent, safe, and s a n i t a r y environment may be achieved. In the case of commercial r e h a b i l i t a t i o n there i s o f t e n more emphasis put on the a e s t h e t i c aspects of improvement than i n r e s i d e n t i a l r e h a b i l i t a t i o n . Commercial enter-p r i s e s , f o r the purpose of t h i s d i s c u s s i o n , may r e f e r to places of entertainment, r e s t a u r a n t s , or o f f i c e s , but r e f e r p a r t i c u l a r l y to r e t a i l o u t l e t s . I t i s the b a s i c aim of the t h e s i s to examine the subject of commercial r e h a b i l i t a t i o n i n d e t a i l i n order to determine i t s progress and i t s problems, p a r t i c u l a r l y under present l e g i s l a t i v e p r o v i s i o n s . i i i P o l i c i e s are then proposed to enable s u c c e s s f u l f u t u r e use of r e h a b i l i t a t i o n i n Canadian c i t i e s . On the assumption that r e v i t a l i z a t i o n of b l i g h t e d commercial areas of the c e n t r a l business d i s t r i c t s of Canadian and American c i t i e s i s a d e s i r a b l e o b j e c t i v e , as a b a s i s f o r i n v e s t i g a t i o n i t i s hypothesized that In order to achieve a comprehensive program of c e n t r a l business d i s t r i c t renewal u t i l i z i n g r e h a b i l i t a t i o n measures, i t i s e s s e n t i a l that there be coordinated p a r t i c i p a t i o n of Federal and l o c a l "governments at the a d v i s o r y , admini-s t r a t i v e , and f i n a n c i a l l e v e l s i n conjunction w i t h the e f f o r t s of p r i v a t e e n t e r p r i s e . Study i s c a r r i e d out i n three major ways. F i r s t , an extensive l i t e r a t u r e review i s used to determine the main p h y s i c a l , s o c i a l , economic, and l e g i s l a t i v e aspects of commercial r e h a b i l i t a t i o n . Second, response from questionnaires sent to Canadian and American c i t i e s having c e n t r a l business d i s t r i c t r e h a b i l i t a t i o n p r o j e c t s w i t h i n a government-sponsored "urban renewal scheme" are tabulated to show the meaning attached to commercial r e h a b i l i t a t i o n by the involved a u t h o r i t i e s ; the extent of r e h a b i l i t a t i o n p r o j e c t s i n execution or planned; the source of i n s p i r a t i o n f o r these p r o j e c t s ; and problems encountered. The hypothesis i s examined s p e c i f i c a l l y through the use of a case-study of the C i t y of V i c t o r i a , B r i t i s h Columbia. Through a r a t h e r s p e c i a l combination of c i v i c and l o c a l business concern coupled w i t h an important t o u r i s t i n d u s t r y and a h e r i t a g e of h i s t o r i c b u i l d i n g s , V i c t o r i a has been the subject of considerable r e h a b i l i t a t i o n e f f o r t . The most s i g n i f i c a n t l i m i t a t i o n of the case-study i s that V i c t o r i a ' s i v c e n t r a l business d i s t r i c t does not e x h i b i t the extreme and f a r - r e a c h i n g c o n d i t i o n s of b l i g h t which are found i n many c i t i e s . Throughout the t h e s i s emphasis i s placed on the r o l e of l o c a l and f e d e r a l governments i n r e l a t i o n to that of p r i v a t e e n t e r p r i s e . From informa t i o n c o l l e c t e d i n the manner p r e v i o u s l y described p o l i c i e s f o r u t i l i z a t i o n by Canadian c i t i e s are proposed. B r i e f l y they recommend that commercial r e h a b i l i t a t i o n be mainly a l o c a l r a t h e r than f e d e r a l government r e s p o n s i b i l i t y ; that the l o c a l government operate mainly i n an advi s o r y and a d m i n i s t r a t i v e r a t h e r than f i n a n c i a l c a p a c i t y ; that p r i v a t e e n t e r p r i s e e f f o r t s be encouraged wherever p o s s i b l e ; and that r e h a b i l i t a t i o n be c a r r i e d out on a comprehensive s c a l e . I t i s f e l t t h at the f i n a n c i a l r o l e played by l o c a l and f e d e r a l governments should be most a c t i v e i n the p r o v i s i o n of s e r v i c e s and p u b l i c works. Where r e h a b i l i t a t i o n proves impossible through p r i v a t e investment sources and yet i s considered to be of genuine b e n e f i t to the community, recourse may be made to C e n t r a l Mortgage and Housing Corporation f o r "urban renewal schemes111 or to the I n d u s t r i a l Development Bank of Canada f o r other areas. Subject to the l i m i t a t i o n placed on the f i n a n c i a l r o l e of government i n commercial r e h a b i l i t a t i o n , the hypothesis i s considered v a l i d . v ACKNOWLEDGEMENTS Many persons have given a s s i s t a n c e during the prep a r a t i o n of t h i s t h e s i s and thus I remember g r a t e f u l l y : For encouragement and i n t e r e s t i n my planning education, Dr. H. Peter Oberlander, Head of the D i v i s i o n of Community and Regional P l a n n i n g . For concern and c o n s t r u c t i v e c r i t i c i s m , P r o f . Robert C o l l i e r of the D i v i s i o n of Community and Regional Planning. For guidance, a s s i s t a n c e , and c r i t i c i s m , my former a s s o c i a t e s at the C a p i t a l Region Planning Board of B.C.: Mr. Anthony Roberts, Mr. George Atamanenko, Mr. John Northey, Mr. James Trimble, and Mr. Michael Bennet; and the M u n i c i p a l Planner f o r Saanich, B.C., Mr. T.W. Loney. For a s s i s t a n c e , Miss Melva Dwyer and the s t a f f of the Fine A r t s L i b r a r y ; and Mrs. Emily F. Stewart, Secretary to the D i v i s i o n of Community and Regional P l a n n i n g . For time f r e e l y given i n in t e r v i e w s and the completion of q u e s t i o n n a i r e s , a much l a r g e r number of persons than i t i s p o s s i b l e to mention here. For f i n a n c i a l a i d during my f i n a l year as a planning student, the C e n t r a l Mortgage and Housing Corporation of Canada. i i TABLE OF CONTENTS Page Chapter I . THE PROBLEM DEFINED 1 U r b a n i z a t i o n and the Need f o r R e v i t a l i z a t i o n Assumptions of the Study O b j e c t i v e s D e f i n i t i o n s P r e s e n t a t i o n of the Hypothesis O r g a n i z a t i o n of the Thesis Scope and L i m i t a t i o n s Footnotes I I . TRENDS IN RETAILING - THE CASE FOR COMMERCIAL REHABILITATION 8 Downtown's H i s t o r i c a l Development The Suburban Shopping Center The E f f e c t on Downtown B l i g h t Hope f o r the Downtown Area Commercial R e h a b i l i t a t i o n Examples of Commercial R e h a b i l i t a t i o n Summary Footnotes I I I . ASPECTS OF COMMERCIAL REHABILITATION 22 P h y s i c a l Aspects P r i n c i p l e s of r e t a i l l o c a t i o n Transportat i o n The p e d e s t r i a n A e s t h e t i c aspects The shopping s t r e e t The downtown m a l l S o c i a l Aspects S o c i a l importance of downtown Customer consumption pat t e r n s The i n i t i a t i v e f o r r e h a b i l i t a t i o n v i i TABLE OF CONTENTS Chapter Economic Aspects R e t a i l s a l e s Land v a l u e , r e n t , and taxes Daytime p o p u l a t i o n Economic costs Economic e f f e c t s Economic a i d s L e g i s l a t i v e Aspects Great B r i t a i n The United States Canada Summary Footnotes IV. COMMERCIAL REHABILITATION PROJECTS UNDER PRESENT LEGISLATIVE PROVISIONS Methodology R e h a b i l i t a t i o n Sponsored by P r i v a t e E n t e r p r i s e A n a l y s i s of Questionnaires Loss i n Sales Volume The Meaning of Commercial R e h a b i l i t a t i o n The Extent of R e h a b i l i t a t i o n P r o j e c t s The Cost of R e h a b i l i t a t i o n Source of I n s p i r a t i o n Problems Encountered The T o t a l Process Summary Footnotes V. EXAMINATION OF A FRAMEWORK FOR REHABILITATION: A CASE-STUDY OF VICTORIA, BRITISH COLUMBIA . . Goals and Reasons f o r R e v i t a l i z a t i o n Role of L o c a l and Federal Governments P r i v a t e E n t e r p r i s e Investment Summary Footnotes TABLE OF CONTENTS Page Chapter V I . POLICIES FOR THE IMPLEMENTATION OF COMMERCIAL REHABILITATION 98 Program f o r A c t i o n The M u n i c i p a l Government Role The Role of P r i v a t e E n t e r p r i s e Summary Footnotes V I I . REVIEW AND EVALUATION OF THE STUDY 105 Summary of the Study E v a l u a t i o n of the Study The Hypothesis: L i m i t a t i o n s and c r i t i c i s m s The Study: L i m i t a t i o n s and c r i t i c i s m s Further research V a l i d i t y of Fi n d i n g s and Hypothesis APPENDIXES I l l BIBLIOGRAPHY 142 i x LIST OF TABLES Page Table 1. P o p u l a t i o n Expansion R a t i o and Change i n CBD Sales . . . 32 2. P o p u l a t i o n S i z e and Stage of R e h a b i l i t a t i o n P r o j e c t . . 53 f o r Selected C i t i e s i n the United States and Canada 3. CBD Sales of General Merchandise f o r Selected American C i t i e s 1958-1963 55 4. Methods Used f o r Commercial R e h a b i l i t a t i o n W i t h i n the C e n t r a l Business D i s t r i c t 57 5. The Extent of CBD Commercial R e h a b i l i t a t i o n 61 6. Commercial Land Use Functions Involved i n CBD R e v i t a l i z a t i o n P r o j e c t s 63 7. The Cost of R e h a b i l i t a t i o n 65 8. Source of I n s p i r a t i o n f o r R e h a b i l i t a t i o n P r o j e c t s . . . 67 9. Estimated Costs, B a s t i o n Square P r o j e c t Phases 1 and 2 . 86 10. Cost of R e h a b i l i t a t i o n , of Selected S t r u c t u r e s W i t h i n the V i c t o r i a CBD 92 11. Rental Values and A l t e r a t i o n Costs . . . . 93 x LIST OF ILLUSTRATIONS Page Figure 1. Sales per Square Foot of S e l l i n g Space i n Downtown Department Stores, 1940-1959 12 2. R e h a b i l i t a t i o n P r o j e c t , P h i l a d e l p h i a , Pennsylvania . . 59 3. R e h a b i l i t a t i o n P r o j e c t , E r i e , Pennsylvania . . . . . . 71 4. B a s t i o n Square, V i c t o r i a , B.C 84 x i LIST OF MAPS Page Map 1. V i c t o r i a i n R e l a t i o n to the C a p i t a l Region 76 2. The Core of the C e n t r a l Business D i s t r i c t , V i c t o r i a , B.C 77 3. Major Highway - Concept f o r the C a p i t a l Region 79 4. Rental Values i n the C e n t r a l Business D i s t r i c t 1964 . . . 90 5. R e h a b i l i t a t i o n P r o j e c t s i n V i c t o r i a ' s CBD 91 x i i 1 CHAPTER ONE THE PROBLEM DEFINED The c r e a t i v e c i t y environment evolves as a r e s u l t of both new and o l d b u i l d i n g s and a r e c o g n i t i o n that the c i t y i s a continuum r e l a t i n g both to our past and to our f u t u r e . Lawrence H a l p r i n i n C i t i e s ' Urbanization' and i t s p h y s i c a l m a n i f e s t a t i o n the ' c i t y ' have become keywords of the tw e n t i e t h century. Seventy percent of the po p u l a t i o n of the United States and Canada i s urbanized. I t has been p r e d i c t e d that by 1990 more than h a l f of the world's people w i l l be l i v i n g i n c i t i e s of 100,000 or more.* Of e a r l y c i t i e s A r i s t o t l e s a i d : "Men come to c i t i e s t o l i v e ; they stay to l i v e a good l i f e . " Today those words are echoed w i t h renewed determination. " I n a democracy the c i t y to s t r i v e f o r i s one i n which human beings can l i v e f r e e l y together, respect each other's v a r y i n g t a s t e s and share the immense power of t h e i r d i f f e r e n c e s . " C i t i e s are not u n l i k e t h e i r i n h a b i t a n t s f o r , from e a r l y times, they have been born, they have grown, and they have matured. Some, such as London, P a r i s , and Rome, have become immortal; others have died when t h e i r reason f o r existence has ceased. Many have been r e b u i l t . Never before, however, has the r e v i t a l i z a t i o n of 2 c i t i e s r e c e i v e d so much a t t e n t i o n and i n p a r t i c u l a r the r e v i t a l i z a t i o n of the heart of the c i t y . H i s t o r i c a l l y , the market place or downtown area of the c i t y has been the center f o r the exchange of goods and s e r v i c e s as w e l l as f o r ideas. 'Downtowns' today s t r i v e to r e t a i n both t h e i r importance and t h e i r mystery. Downtown i s the business center, the place of work, the museum of s t y l e , the change of scene, the confluence of d i v e r s i t i e s , the escape to anonymity. I t i s the scene of p o l i t i c a l a c t i o n , of c o u r t s , of doctors and lawyers, the place i n which the deeper human problems are exposed and a l l a y e d . I t has become the locus of the great modern i n s t i t u t i o n of Lunch, i n which you can make a sale or loan over the coffeecup. I t i s where a man can meet a lady without being accused of having a rendezvous. I t i s the place that draws the masses and that the masses have made.^ But 'downtowns' do not continue to e x i s t without t h r e a t s to t h e i r l i f e i n the form of the automobile, the suburb, and b l i g h t . I t i s the con-t i n u e d e x i s t e n c e of the heart of our c i t i e s which i s the concern of t h i s t h e s i s . More s p e c i f i c a l l y , i t i s t h e i r continued existence through the u t i l i z a t i o n of techniques of r e v i t a l i z a t i o n , i n p a r t i c u l a r that of ' r e h a b i l i t a t i o n ' . Assumptions of the Study The technique of r e h a b i l i t a t i o n i s designed to e l i m i n a t e urban b l i g h t and i s p r e s e n t l y being employed i n conjunction w i t h other renewal measures i n r e s i d e n t i a l , i n d u s t r i a l , and commercial areas. Support f o r p r o j e c t s i n v o l v i n g r e h a b i l i t a t i o n i s beginning to r e c e i v e a t t e n t i o n from both the p r i v a t e and the p u b l i c s e c t o r s of the economy. This i s 3 p a r t i c u l a r l y t r u e i n the case of commercial r e h a b i l i t a t i o n w i t h i n 'downtown' areas. The acceptance of programs to r e v i t a l i z e such areas r e s t s upon the acceptance of c e r t a i n assumptions. They are, f i r s t l y , t h at downtown p r o s p e r i t y i s d e s i r a b l e ; secondly, that there i s a c e r t a i n l e v e l of p h y s i c a l c o n d i t i o n which a commercial d i s t r i c t must achieve i n order to be acceptable and a t t r a c t i v e to the p u b l i c ; and f i n a l l y , t h at c e n t r a l business d i s t r i c t f u n c t i o n s which are of b e n e f i t to the p u b l i c must be r e t a i n e d w i t h i n the c e n t r a l area. These f u n c t i o n s i n c l u d e r e t a i l i n g , o f f i c e s , f i n a n c e , entertainment, p u b l i c s e r v i c e , w h o l e s a l i n g , and i n some cases, manufacturing and r e s i d e n t i a l f a c i l i t i e s . O b j e c t i v e s and Hypothesis Accepting these assumptions t o be ten a b l e , i t w i l l be the o b j e c t i v e of t h i s study t o examine the technique of r e h a b i l i t a t i o n as i t i s being used i n commercial areas; to review and evaluate the progress of government-sponsored commercial r e h a b i l i t a t i o n programs i n c e n t r a l business d i s t r i c t s i n the United States and Canada; and by the case-study method to determine the balance of achievement by p r i v a t e e n t e r p r i s e and p u b l i c endeavour i n the r e h a b i l i t a t i o n e f f o r t s of one s p e c i f i c c i t y . At the outset i t was p o s t u l a t e d that IN ORDER TO ACHIEVE A COMPREHENSIVE PROGRAM OF CENTRAL BUSINESS DISTRICT RENEWAL UTILIZING REHABILITATION MEASURES, IT IS ESSENTIAL THAT THERE BE COORDINATED PARTICIPATION OF FEDERAL AND LOCAL GOVERNMENTS AT THE ADVISORY, ADMINI-STRATIVE, AND FINANCIAL LEVELS IN CONJUNCTION WITH THE EFFORTS OF PRIVATE ENTERPRISE. 4 D e f i n i t i o n s For the purpose of c l a r i t y a number of terms that w i l l be f r e q u e n t l y employed are d e f i n e d . 'Urbanization* r e f e r s to "the p r o p o r t i o n of the t o t a l p opulation concentrated i n urban settlements, or e l s e to a r i s e i n t h i s proportion.' 'Central Business D i s t r i c t * i s "the focus of commercial, s o c i a l , and c i v i c l i f e , and of t r a n s p o r t a t i o n . " 'Downtown' . . . r e a l l y a c o l l o q u i a l i s m , r e f e r s to the c e n t r a l business d i s t r i c t . 'Urban renewal* i s "the c o l l e c t i v e s e r i e s of a c t i o n s , both p u b l i c and p r i v a t e , the t o t a l e f f e c t of which might be the r e s t o r a t i o n of the economic, s o c i a l and p h y s i c a l h e a l t h of the community." 'Redevelopment' r e f e r s to the clearance of e x i s t i n g outmoded s t r u c t u r e s and t h e i r replacement w i t h new c o n s t r u c t i o n . ' R e h a b i l i t a t i o n 1 i n v o l v e s ^ " t h e remodelling, a l t e r i n g , r e p a i r i n g and otherwise improving substandard, d e t e r i o r a t e d , or obsolete areas, or i n d i v i d u a l s t r u c t u r e s w i t h i n these areas, so that a gecent, safe, and s a n i t a r y environment may be achieved." 'Conservation' i s m a i n t a i n i n g i n good order that which i s already i n good c o n d i t i o n through the a p p l i c a t i o n of c o n t r o l s and the encouragement of a p u b l i c i n f o r m a t i o n program. ' H i s t o r i c p r e s e r v a t i o n ' devotes i t s e l f through r e h a b i l i t a t i o n and conservation to the r e s t o r a t i o n of s t r u c t u r e s of h i s t o r i c i n t e r e s t placed i n s u i t a b l e surroundings. A l l of the aspects of urban renewal which have been mentioned i n v o l v e the c o n t i n u i n g process of improvement and must take place w i t h i n the framework of an o v e r a l l community p l a n . 5 Org a n i z a t i o n of the Thesis Trends i n the l o c a t i o n of commercial e n t e r p r i s e w i l l be discussed i n Chapter Two w i t h p a r t i c u l a r a t t e n t i o n being given to the development of the suburban shopping center and what appears to be the concomitant phenomenon of commercial b l i g h t i n the core. Commercial r e h a b i l i t a t i o n , as a method to combat t h i s b l i g h t , w i l l be i l l u s t r a t e d w i t h examples from Great B r i t a i n , from the United S t a t e s , and from Canada. For convenience the many aspects of commercial r e h a b i l i t a t i o n w i l l be examined under the headings of p h y s i c a l , s o c i a l , economic, and l e g i s l a t i v e - a d m i n i s t r a t i v e aspects i n Chapter Three. In Chapter Four an attempt w i l l be made to evaluate the progress of commercial r e h a b i l i t a -t i o n i n Canada and the United States under present l e g i s l a t i v e p r o v i s i o n s . A case-study i n v o l v i n g r e h a b i l i t a t i o n measures u t i l i z e d i n V i c t o r i a , B r i t i s h Columbia, w i l l be the subject of Chapter F i v e ; and the p o l i c i e s f o r commercial r e h a b i l i t a t i o n w i l l be the subject of Chapter S i x . Summary and e v a l u a t i o n of the study w i l l comprise the f i n a l chapter. Scope and L i m i t a t i o n s The emphasis i s placed throughout the study on development of p o l i c i e s f o r Canadian c i t i e s . However, since considerable experience i n the f i e l d of commercial r e h a b i l i t a t i o n has been gained by other c o u n t r i e s , the scope of the t h e s i s i s extended to include examples from the United States and Great B r i t a i n . The scope i s f u r t h e r defined by the methods of research which included a l i t e r a t u r e review, q u e s t i o n n a i r e s , and personal i n t e r v i e w s . L i m i t a t i o n s to the study are found i n c e r t a i n 6 aspects of the questionnaire and case-study methods. Problems w i t h questionnaires may a r i s e from the manner i n which questions are asked. The case-study has two weaknesses. The choice of V i c t o r i a , B r i t i s h Columbia, i s l i m i t i n g i n that t h i s c i t y does not contain any extremely b l i g h t e d commercial areas, f o r d e t e r i o r a t i o n has u s u a l l y been a r r e s t e d . F i n a l l y , i t i s d i f f i c u l t to e s t a b l i s h a c o n t r o l s i t u a t i o n against which one can evaluate the p o l i c i e s evolved by a p a r t i c u l a r c i t y . 7 Footnotes to Chapter One •^Kingsley Davis, "The U r b a n i z a t i o n of the Human P o p u l a t i o n , " S c i e n t i f i c American, CCXIII, No. 3 (September, 1965), p. 41. z P a u l Y l v i s a k e r , "The V i l l a i n s are Greed, I n d i f f e r e n c e -And You," L i f e Magazine. LIX, 6 (December 24, 1965), p. 96. ^Charles Abrams, "Downtown Decay and R e v i v a l , " J o u r n a l of the American I n s t i t u t e of Planners, XXVIII, No. 1 (February, 1961), p. 3. ^Davis, l o c . c i t . ^Chauncy D. H a r r i s and Edward L. Ullman,"The Nature of C i t i e s , " Readings i n Urban Geography, ed. Harold M. Mayer and Clyde F. Kohn, (Chicago: The U n i v e r s i t y of Chicago P r e s s , 1959), p. 282. ^Stanley H. P i c k e t t , "Urban Renewal, the Fundamentals of P l a n n i n g , " Ontario Housing, X I , No. 4 ( A p r i l , 1966), p. 11. I b i d . 8jack M. S i e g a l and C. W i l l i a m Brooks, Slum Prev e n t i o n Through Conservation and R e h a b i l i t a t i o n , Report of the Subcommittee on Urban Redevelopment, R e h a b i l i t a t i o n , and Conservation t o the P r e s i d e n t ' s A d v i s o r y Committee on Government Housing P o l i c i e s and Programs (Washington, D.C.: Government P r i n t i n g O f f i c e , 1953), p. 12. P i c k e t t , l o c . c i t . CHAPTER TWO TRENDS IN RETAILING -THE CASE FOR COMMERCIAL REHABILITATION We must r e s t o r e to the c i t y the maternal, l i f e -n u r t u r i n g f u n c t i o n s , the autonomous a c t i v i t i e s , the symbiotic a s s o c i a t i o n s that have long been neglected or suppressed. For the c i t y should be an organ of love; and the economy of c i t i e s i s the cure and c u l t u r e of men. Lewis Mumford During recent years there has been a preoccupation w i t h the development of i n t e g r a t e d shopping centers to f u l f i l l the need f o r r e t a i l trade f a c i l i t i e s . The shopping center admittedly provides a p a r t i a l s o l u t i o n to a need created by urban growth. A t t e n t i o n has now turned, however, to the core of the urban area, the downtown or c e n t r a l business d i s t r i c t . The importance attached to t h i s area i s not a recent phenomenon. E a r l y s o c i e t i e s formed c i t i e s some 5,500 years ago and attached s p e c i a l s o c i a l and ceremonial s i g n i f i c a n c e to t h e i r communal meeting places i n the c l e a r e d area surrounded by t h e i r homes. Babylon i n Mesopotamia; Thebes i n Egypt; Mohenjo-Daro i n the v a l l e y of the Indus R i v e r ; Anyang i n China; Teotihuacan near modern Mexico C i t y a l l developed between 3,500 B.C. and the f i r s t century A.D. and showed the center of the c i t y 8 9 as the p r e s t i g e area, the s e t t i n g f o r magnificent r e l i g i o u s and governmental centers and the c e n t r a l market area. Fourth century Athens contrasted the b u s t l i n g a c t i v i t y of the agora against the backdrop of the deeply symbolic A c r o p o l i s . The medieval European c i t y converged inward upon the commercial square. The examples are many but point to the f a c t that the market place has been h i s t o r i c a l l y a place of i d e n t i f i c a t i o n f o r many of the world's c i t i e s . Canada and the United States have been no exception. U n t i l the 1920's, Main Street was the c i v i c center f o r the p o p u l a t i o n of most c i t i e s . While many s t u d i e s have pointed to the c e n t r a l business d i s t r i c t as the core of r e t a i l and s e r v i c e a c t i v i t y because of i t s unique a c c e s s i b i l i t y t o the e n t i r e c i t y population,1 the c r y that 'Downtown i s dying!' has become an a l l too f a m i l i a r one w i t h i n the l a s t f i f t e e n years. This demise of downtown i s caused by a considerable number of f a c t o r s . Development of the Suburban Shopping Center The 1890's saw the f i r s t s t r e e t r a i l r o a d s i n North America and w i t h them the growth of o u t l y i n g business centers alongside the i n t e r -s e c t i o n s of p u b l i c t r a n s i t l i n e s . These centers housed mainly mass appeal s t o r e s . Further business d i s t r i c t s developed when the i n v e n t i o n of the automobile allowed a r e l e a s e from the f i x e d p a t t e r n of t r a c k s . P r e v i o u s l y the only convenient way to get to the c e n t r a l shopping area was on t r a c k s but w i t h the new emphasis on p r i v a t e t r a n s p o r t a t i o n and on motor bus l i n e s the o u t l y i n g business d i s t r i c t gained a c c e s s i b i l i t y and appeal over the c e n t r a l area. In a d d i t i o n , s e v e r a l other f a c t o r s 10 c o n t r i b u t e d to the e v o l u t i o n of the suburban shopping center as we know i t today. The 'New Town' or 'Garden C i t y ' philosophy f i r s t suggested by Ebenezer Howard i n 1898 gave weight t o arguments i n favour of e s t a b l i s h i n g s e l f - s u f f i c i e n t small towns. His thoughts were developed f u r t h e r by S i r P a t r i c k Geddes i n terms of r e g i o n a l planning and Le Corbusier i n h i s Radiant C i t y . They are seen today i n E n g l i s h and Swedish s a t e l l i t e towns and to a c e r t a i n extent i n North American suburbia. They may d e t r a c t from the importance attached to a c i t y ' s c e n t r a l area. The general increase i n po p u l a t i o n and the pop u l a t i o n s h i f t to the suburbs have combined w i t h an i n c r e a s i n g l y more ' a f f l u e n t s o c i e t y ' to make the f a m i l y u n i t s w i t h t h e i r cars the customers of the new shopping cen t e r s . While c e n t r a l business d i s t r i c t employment r e t a i n s i t s importance many a downtown worker i s a suburban.resident and shopper. F u r t h e r , a number of i n d u s t r i a l p l a n t s and governmental agencies have followed the f l i g h t to the suburbs. Merchandising, too, has changed. The trend i s toward l a r g e r merchandising u n i t s , cross l i n e s i n merchandising, the use of t r a d i n g stamps and other a d v e r t i s i n g gimmicks, rearrangement i n the hours of business w i t h n i g h t hours c a t e r i n g t o the f a m i l y as a shopping u n i t , and the a v a i l a b i l i t y of no cost o f f - s t r e e t p a r k i n g . The cause of concern to c i t y merchants i s demonstrated by the diagram on the f o l l o w i n g page. 2 30 I 1 1 1 I I 1940 1944 [ 9 4 8 ( 9 5 2 1956 I 9 6 0 IG . 2 S A L E S PER S Q U A R E F O O T O F S E L L I N G S P A C E D O W N T O W N D E P A R T M E N T S T O R E S IN T H E U N I T E D S T A T E S , 1 9 4 0 - 1 9 5 9 IN ,12 B l i g h t W i t h i n the C e n t r a l Business D i s t r i c t U r b a n i z a t i o n and i t s companion suburbanization have had a decided e f f e c t on the c e n t r a l business d i s t r i c t . The seriousness of the e f f e c t has been dependent on a number of f a c t o r s . The e f f e c t appears to be more severe i n l a r g e r c i t i e s than i n smaller c i t i e s . I t depends on the aggressiveness and competence of suburban developers as compared t o the owners of the downtown business d i s t r i c t . The main type of housing i n a c i t y , s i n g l e f a m i l y or m u l t i p l e f a m i l y d w e l l i n g , may be a f a c t o r as i s the s t a t e of the p u b l i c t r a n s p o r t a t i o n system. The automobile i s perhaps the greatest s i n g l e source of t r o u b l e . While volume of t r a f f i c tends t o inc r e a s e , the high cost of land accentuates the problem of pro-v i d i n g parking f a c i l i t i e s . Added to t h i s i s the r e s u l t of the passage of time. Commercial establishments which may once have been quite adequate as w e l l as a e s t h e t i c a l l y a t t r a c t i v e , may have d e t e r i o r a t e d and become ob s o l e t e . " B l i g h t e x i s t s where d e t e r i o r a t i o n has set i n and where.a l o s s of value e x i s t s . . . ."^ B l i g h t i s the name given to the disease which r e s u l t s from the neglect of the p h y s i c a l maintenance of s t r u c t u r e s and improvements and from a f a i l u r e to adapt to modern c o n d i t i o n s . The p h y s i c a l m a n i f e s t a t i o n s of commercial b l i g h t are obvious. The economic e f f e c t s are many and, apart from those a f f e c t i n g ownership, may not be - as obvious. Among them are lowered property values and assessment with subsequent l o s s of revenue t o l o c a l governments; e x t r a cost i n p r o v i d i n g s e r v i c e s to run-down areas; l o s s of p r o d u c t i v i t y of those working i n an 13 u n a t t r a c t i v e and unhealthy environment; and general l o s s and d e t e r i o r a t i o n of businesses.-* An example of the above-mentioned f a c t i s given by V i c t o r Gruen who s t a t e s that i n C i n c i n n a t i , Ohio, the number of r e t a i l establishments dropped from 1,054 to 854 between 1948 and 1958 and the assessment t o t a l of these establishments dropped from 21 percent to 17 percent between 1945 and 1955.^ S i m i l a r r e s u l t s were found i n D e t r o i t , Michigan; Milwaukee, Wisconsin; and Boston, Massachusetts. Berry i n h i s book Commercial St r u c t u r e and Commercial B l i g h t i d e n t i f i e s two f u r t h e r forms of b l i g h t . ^ They are f u n c t i o n a l b l i g h t which r e f e r s to changes i n e i t h e r the supply or demand f o r c e r t a i n types of commercial s t r u c t u r e s and f r i c t i o n a l b l i g h t which r e f e r s to the d e l e t e r i o u s e f f e c t which a business may have on i t s surroundings. I n d i c a t i o n s of R e b i r t h i n C e n t r a l Business D i s t r i c t s I f i t i s true that suburban shopping centers have grown to f i l l the needs of a suburban-based pop u l a t i o n adequately, and i f down-town i s i n a s t a t e of decay, then perhaps there i s no hope. This i s not the case f o r reasons which i n v o l v e not only the business i n t e r e s t s which operate i n the downtown area but a l s o the consumers who demand a v i t a l downtown area. P r i v a t e e n t e r p r i s e has reacted i n such a way that Good, bad, or " i n d i f f e r e n t , the f a c t remains that business i n t e r e s t s i n t h i s p o r t i o n of the c i t y the c e n t r a l business d i s t r i c t i n most areas of western c u l t u r e have adopted a d e t e r m i n i s t i c a t t i t u d e as t o the value of a strong C.B.D., and are supporting t h e i r a t t i t u d e s by both p r i v a t e a c t i o n s and co-operative e f f o r t s through t h e i r downtown a s s o c i a t i o n . ^ 14 For the consumer, two elements are important. In 1955, Mr. C.T. Jonassen published a study which i n d i c a t e d that " . . . i f the C.B.D. d e c l i n e d , the s o c i a l change would i n v o l v e a r a d i c a l r e o r d e r i n g of the e c o l o g i c a l and f u n c t i o n a l s t r u c t u r e of urban communities" and f u r t h e r that the c e n t r a l business d i s t r i c t has c e r t a i n d e f i n i t e advantages.^ Downtown held advantages over suburban shopping centers i n s i x t e e n out of twenty-three f a c t o r s t e s t e d i n h i s study. Among the disadvantages l i s t e d were d i f f i c u l t . p a r k i n g , crowds, and t r a f f i c congestion. Advantages included the large s e l e c t i o n of goods, the p o s s i b i l i t y of doing s e v e r a l errands at once, and cheaper p r i c e s . Advantages of shopping centers o f t e n r e s u l t e d from negative f a c t o r s of the downtown s i t u a t i o n . More r e c e n t l y a second phase has become obvious. Downtown i s not dying but i t i s changing. C e n t r a l o f f i c e f u n c t i o n s are i n c r e a s i n g and the r e t a i l f u n c t i o n i s changing i n i t s emphasis. This new emphasis i s on s p e c i a l t y goods and on s p e c i a l s e r v i c e s . The t h e o r i e s which support these ideas are the e c o l o g i c a l theory which suggests that businesses compete f o r l o c a t i o n i n terms of r e n t - b i d d i n g and thus those which secure a s i t e i n the core are those which demand c e n t r a l i t y . The c e n t r a l place theory suggests that the c e n t r a l business d i s t r i c t can be the only l o c a t i o n f o r high-order goods, those which are demanded l e a s t f r e q u e n t l y , and so must have a wider consumer area from which to draw. Suburban development w i l l continue but the challenge f a c i n g planners, c i v i c o f f i c i a l s , and p r i v a t e business i n t e r e s t s a l i k e i s the p r o v i s i o n of a balance between suburban areas and the downtown area i n order t o provide the consumer w i t h maximum choice and maximum convenience. 15 Goals f o r the c e n t r a l business d i s t r i c t must be c l e a r l y enunciated and then t a i l o r e d to f i t the means a v a i l a b l e to accomplish them. Among < these goals must be the r e t e n t i o n , strengthening, and d i v e r s i f i c a t i o n of c e n t r a l area a c t i v i t i e s along w i t h t h e i r r e - i n t e g r a t i o n ; the p r o v i s i o n of f a c i l i t i e s r e q u i r e d f o r automobile t r a n s p o r t a t i o n ; and p h y s i c a l r e h a b i l i t a t i o n and renewal which w i l l r e t a i n and increase c e n t r a l area value by c o n t r o l l i n g obsolescence and s t a b i l i z i n g l o c a t i o n . To enumerate goals i s c o n s i d e r a b l y l e s s d i f f i c u l t than t o implement plans which w i l l achieve them. W i t h i n the c e n t r a l business d i s t r i c t s of c i t i e s there are many o b s t a c l e s . Among these are the l a c k of core land, w h i l e on the other hand there may be easy a v a i l a b i l i t y of l a r g e p l o t s of land f o r suburban development, and there may be apparent r e s i s t a n c e to improvement on the part of downtown property owners. Commercial r e h a b i l i t a t i o n , both on a s i n g l e business b a s i s and on an a r e a l b a s i s , i s p r e s e n t l y being used to combat the problems of the downtown area. Commercial r e h a b i l i t a t i o n i s by no means the only answer t o downtown r e v i t a l i z a t i o n . I t must be coupled w i t h an adequate program of conservation; i t must be coordinated w i t h an a c t i v e p r o v i s i o n of p u b l i c s e r v i c e s ; and i t must only be undertaken where, i n i t s implementation, complete redevelopment would not be more economic and s u c c e s s f u l . Commercial r e h a b i l i t a t i o n p r o j e c t s have been c a r r i e d out and are being c a r r i e d out i n Great B r i t a i n , i n the United S t a t e s , and i n Canada. They vary g r e a t l y i n t h e i r scope but t h e i r general p r i n c i p l e of downtown r e v i t a l i z a t i o n i s constant. The time has come to re-examine 16 the progress, the success, and the problems which have been encountered and to determine how r e h a b i l i t a t i o n can best be extended i n the f u t u r e . Richard Nelson and F r e d e r i c k Aschman have l i s t e d the o b j e c t i v e s f o r a program of r e h a b i l i t a t i o n and conservation "under maximum con-d i t i o n s of need and f e a s i b i l i t y . " ^ They are: 1. UNIFICATION of the d i s t r i c t , a r c h i t e c t u r a l l y and planning-wise, i n t o a d e f i n i t e e n t i t y which w i l l not s h i f t i t s " l o c a t i o n but w i l l remain as a true ^ c e n t e r " w i t h perpetual r e b u i l d i n g or self-development. 2. IMPROVEMENT OF SITE LAYOUT through establishment of new r e l a t i o n s h i p s between s t o r e s , p a r k i n g , p e d e s t r i a n s , m o t o r i s t s , t r u c k and other s e r v i c e s . 3. ELIMINATION OF BLIGHT i n the form of nonconforming uses and d e t e r i o r a t e d s t r u c t u r e s . 4. PROVISION of new amenities i n terms of both a e s t h e t i c s and convenience. 5. ACHIEVEMENT OF COHESION OF MANAGEMENT/OPERATION through cooperation of m u l t i p l e i n t e r e s t s a c t i n g j o i n t l y to maintain s c i e n t i f i c management p r a c t i c e i n areas of mutual i n t e r e s t and n e c e s s i t y . Some of the o b j e c t i v e s of commercial r e h a b i l i t a t i o n can perhaps best be seen i n p r o j e c t s which have been undertaken. For t h i s reason three examples have been chosen.of p r o j e c t s which have a t t r a c t e d s u b s t a n t i a l a t t e n t i o n . They are found i n Norwich, England; i n Fresno, C a l i f o r n i a ; and i n Toronto, O n t a r i o . 17 Examples of R e h a b i l i t a t i o n P r o j e c t s In 1957, the Norwich C i t y C o u n c i l was approached by the C i v i c Trust which proposed that a p r o j e c t be undertaken to show how a given area i n a c i t y could be improved without major a l t e r a t i o n or expense, i f a l l concerned could be persuaded t o work together. The area chosen was Magdalen St r e e t because i t s problems were f e l t to be t y p i c a l . The pla n was t o emphasize good p o i n t s and camouflage bad ones, a task which i s made d i f f i c u l t under c o n d i t i o n s of m u l t i p l e ownership. Support f o r the scheme was secured through a p u b l i c meeting and a qu e s t i o n n a i r e . What was a c t u a l l y accomplished? As a matter of r e c o r d , 66 p r o p e r t i e s f a c i n g the s t r e e t , together w i t h a number of a l l e y s and courtyards, were repainted i n a co-ordinated scheme; 17 signboards over the shops were redesigned and 38 were r e l e t t e r e d ; 22 pro-j e c t i n g name signs and advertisements were removed; 26 shops i n s t a l l e d new b l i n d s ; 16 added new c u r t a i n s t o t h e i r upper windows; 6 lamp standards were removed and replaced by new l i g h t i n g ; 2 new bus s h e l t e r s of a standard design prepared by the c i t y a r c h i t e c t , and 1 e s p e c i a l l y designed crush b a r r i e r were erected; 5 new bus stop signs super-seded the o l d ones; 11 p a i r s of No Waiting and No Loading signs were redesigned as one; another p a i r was removed a l t o g e t h e r ; overhead wires were r e s i t e d so that they would not cross the s t r e e t ; S t. Saviour's Church was f l o o d l i t , and a corner l o t was planted by the C i t y Park Department. Some 40 other s t r u c t u r e s and ob j e c t s i n the s t r e e t were removed, r e p l a c e d , ororepainted - an e l e c t r i c i t y box here, a n o t i c e board t h e r e , a fence somewhere e l s e , and so on. * Upon completion the average cost to each merchant was l e s s than $200.00. The t o t a l r e s t o r a t i o n cost was $22,500.00 w i t h the m u n i c i p a l i t i e s ' p o r t i o n and that of the C i v i c Trust at about $15,000.00. 18 In 1958, through an o r g a n i z a t i o n known as the Downtown A s s o c i a t i o n , Fresno, C a l i f o r n i a , h i r e d the a r c h i t e c t u r e - p l a n n i n g f i r m of V i c t o r Gruen A s s o c i a t e s i n an attempt to rescue t h e i r downtown area. Along F u l t o n S t r e e t , the main s t r e e t of Fresno, C a l i f o r n i a , i n an area s i x blocks long and three b l o c k s wide, automobiles were banished and a pe d e s t r i a n m a l l was created. Featured i n the m a l l are f o u n t a i n s , p o o l s , and many pieces of scu l p t u r e as w e l l as playgrounds f o r the c h i l d r e n and benches f o r the e l d e r l y or l e i s u r e l y . P a r king areas are placed around the m a l l so that no b u i l d i n g i s more than f o r t y yards from the nearest parking place and small e l e c t r i c trams are provided. The cost of the m a l l was to be about $1,500,000.00. A merchants* assessment paid $600,000.00, the f e d e r a l government p a i d $900,000.00 and the c i t y c o n t r i b u t e d maintenance c o s t s . The success of t h i s pro-j e c t has been measured i n a 20 percent increase i n business since the m a l l opened as w e l l as by the f a c t that assessed v a l u a t i o n s have r i s e n s h a r p l y . J Y o r k v i l l e V i l l a g e of Toronto i s more t r u l y a 'happening' than a preconceived p l a n . An area of t a l l V i c t o r i a n houses, i t was i n danger of becoming thoroughly b l i g h t e d when, i n 1950, i t was taken over by a number of i n t e r i o r designers and shop-keepers who turned the area i n t o a s e r i e s of a t t r a c t i v e shops and s t u d i o s . Soon a number of luxury shops moved i n t o the area and were followed by r e s t a u r a n t s , sidewalk c a f e s , and discotheques. In 1962 a group known as the V i l l a g e of Y o r k v i l l e A s s o c i a t i o n was formed to c o n t r o l the neighbourhood's c h a r a c t e r . The c i t y of Toronto has c o n t r i b u t e d d i s t i n c t i v e s t r e e t 19 s i g n s , new sidewalks, b e t t e r l i g h t i n g , and underground w i r i n g . A l l these f a c t o r s have created an e x c i t i n g and unique shopping p r e c i n c t . Suburban shopping centers have grown up t o f i l l a c e r t a i n need of the suburban populace but as can be seen by the above examples, the c e n t r a l business d i s t r i c t s are f i g h t i n g to r e g a i n the prominence they once h e l d . Not only must they recover from the business l o s t to shopping centers but a l s o from the ravages of time. Commercial r e h a b i l i t a t i o n used as a method to speed recovery has many aspects and these w i l l be discussed i n the next chapter. 20 Footnotes to Chapter Two ^ l c o l m Proudfoot, " C i t y R e t a i l S t r u c t u r e , " Economic Geography, X I I I (October, 1937), p. 425. Richard R a t c l i f f , Urban Land Economics (New York: McGraw-Hill, 1949), pp. 386-397. J . Vance, "Emerging Patterns of Commercial S t r u c t u r e i n American C i t i e s , " I.G.U. Symposium i n Urban Geography, Lund, 1960, ed. K. Norberg (Lund: Gleerup, 1962), p. 485 f f . ^George S t e r n l i e b , "The Future of R e t a i l i n g i n the Downtown Core,"' J o u r n a l of the American I n s t i t u t e of Planners, XXIX, No. 3 (May, 1963), p. 110. ^ L a r r y Smith, "Commercial Real Estate R e l a t i o n s h i p s , Downtown and Suburban," Urban Land, XV, No. 3 (March, 1956), pp. 3-4. ^United States Chamber of Commerce, Urban Development Guidebook (Washington: Chamber of Commerce Co n s t r u c t i o n and C i v i c Development Department, November, 1955), p. 3. 5 I b i d . , p. 4. ^ V i c t o r Gruen, The Heart of Our C i t i e s (New York: Simon and Schuster, 1964), p. 89. ^B.J.L. B e r r y , Commercial S t r u c t u r e and Commercial B l i g h t (Chicago: The U n i v e r s i t y of Chicago Press, 1963), p. 179. 8Edgar M. Horwood, "The Core of the C i t y : Emerging Concepts," Plan Canada, I I , No. 3 (December, 1961), p. 111. ^C.T. Jonassen, The Shopping Center Versus Downtown (Columbus, Ohio: Ohio State U n i v e r s i t y , 1955), p. 94. 21 1 UR.L. Nelson and F r e d e r i c k T. Aschman, Conservation and R e h a b i l i t a t i o n of Major Shopping D i s t r i c t s , Urban Land I n s t i t u t e T e c h n i c a l B u l l e t i n No. 22 (Washington, D.C.: The Urban Land I n s t i t u t e , February, 1964), p. 8. u I b i d . 1^Norwich Union Insurance Group, The Norwich Plan f o r Downtown R e s t o r a t i o n (Toronto: The Norwich Union Insurance Group, no d a t e ) , p. 3. 1 3 B e r n a r d Taper, "The C i t y that Puts People F i r s t , " 1 McCall's Magazine. XCV, No. 4 ( A p r i l , 1966). CHAPTER THREE ASPECTS OF COMMERCIAL REHABILITATION Our e f f o r t s must be towards c r e a t i n g environmental q u a l i t i e s that w i l l help f u l f i l l the human heart's d e s i r e i n the c i t y ' s h e a r t , and on the other hand make i t p o s s i b l e t o reach the heart w i t h speed and convenience. V i c t o r Gruen i n The Heart of Our C i t i e s The study of any method of c e n t r a l business d i s t r i c t r e v i t a l i z a t i o n i n v o l v e s examination of a number of d i f f e r e n t f u n c t i o n a l a s pects. In reviewing the l i t e r a t u r e of the c e n t r a l business d i s t r i c t S h i r l e y F. Weiss has noted that the f i e l d s of urban s o c i o l o g y , human ecology, economic geography, economic h i s t o r y , urban land economics, marketing, s o c i a l behaviour, t r a f f i c engineering, p u b l i c a d m i n i s t r a t i o n , urban design, a n d - c i t y and r e g i o n a l planning a l l have an i n t e r e s t . ^ R e h a b i l i t a t i o n of commercial land uses i n c e n t r a l areas a l s o i n v o l v e s a c o n s i d e r a t i o n of many of the subjects studied i n these d i s c i p l i n e s . For t h i s reason, i t i s necessary t o determine what the p h y s i c a l , s o c i a l , and economic reasons, methods, and e f f e c t s " of commercial r e h a b i l i t a t i o n are, as w e l l as to understand what l e g i s l a t i v e p r o v i s i o n s have been made f o r t h i s type of renewal. 22 23 P h y s i c a l Aspects The n e c e s s i t y f o r improvement i n the p h y s i c a l aspect of today's c i t i e s i s most apparent i n downtown areas. I t would be d i f f i c u l t to f i n d a c i t y which does not s u f f e r from areas made ugl y by the passage of time and the ravages of b l i g h t . In many cases the s t r e e t s are i n poor c o n d i t i o n , narrow, and c l u t t e r e d w i t h c a r s . Overhead w i r i n g may form almost a roof over the s t r e e t . Shop signs and advertisements compete f o r a t t e n t i o n and completely o b l i t e r a t e what might have once been a r c h i t e c t u r a l l y a t t r a c t i v e b u i l d i n g s . The b u i l d i n g s themselves are o f t e n s t r u c t u r a l l y unsound and have dim l i g h t i n g . The area r e q u i r i n g some type of renewal i s not d i f f i c u l t to i d e n t i f y : however, before commercial r e h a b i l i t a t i o n programs are undertaken, c e r t a i n other c o n d i t i o n s must be met to ensure success. This i s p a r t i c u l a r l y true i n the case of r e h a b i l i t a t i o n as opposed to t o t a l redevelopment which o f t e n i n v o l v e s a change i n land use. Most important i n any area where r e t a i l i n g i s to take place i s the need to s a t i s f y the p r i n c i p l e s of r e t a i l l o c a t i o n . Richard L. Nelson has i d e n t i f i e d e i g h t f a c t o r s which must be considered. They are: 1. There must be an adequate t r a d i n g area p o t e n t i a l . 2. The r e t a i l area must be e a s i l y a c c e s s i b l e to the r e s i d e n t s of the t r a d i n g area. 3.&4. The s i t e of the r e t a i l l o c a t i o n must contain room f o r p o t e n t i a l growth and must be i n a p o s i t i o n to i n t e r c e p t b u s i n e s s . 5.&6. W i t h i n the r e t a i l area i t s e l f , s tores should provide c o m p a t i b i l i t y between themselves and should provide cumulative a t t r a c t i o n . 24 7. The hazards of competition should be minimized. 8. The s i t e must be analyzed i n terms of the r e l a t i o n of i t s cost to i t s p r o d u c t i v i t y . 2 Two of these f a c t o r s need f u r t h e r d e f i n i t i o n . According to Nelson the theory of cumulative a t t r a c t i o n means t h a t : . . . a given number of stores d e a l i n g i n the same merchandise w i l l do more business i f they are located adjacent or i n p r o x i m i t y to each other than i f they are w i d e l y separated.3 The r u l e of r e t a i l c o m p a t i b i l i t y s t a t e s t h a t : . . . two compatible businesses located i n c l o s e p r o x i m i t y w i l l show an increase i n business volume d i r e c t l y pro-p o r t i o n a t e t o the incidence of t o t a l customer interchange between them, i n v e r s e l y proportionate to the r a t i o of the business volume of the l a r g e r store to that of the smaller s t o r e , and d i r e c t l y p r o portionate to the sum of the r a t i o s of purposeful purchasing to t o t a l purchasing i n each of the two s t o r e s . ^ Since downtown areas have a large cumulative a t t r a c t i o n i n t h e i r h i g h - d e n s i t y r e t a i l establishments and since they serve the downtown working and t r a n s i e n t p o p u l a t i o n , they would appear to provide an e x c e l l e n t b a s i s on which to begin r e h a b i l i t a t i o n . The second f a c t o r which must be considered i s the importance of t r a n s p o r t a t i o n to the l i f e of the c e n t r a l areas of our c i t i e s . Without a good system of t r a n s p o r t a t i o n w i t h i n and to the downtown area, and without adequate p r o v i s i o n f o r p a r k i n g , any renewal of downtown w i l l f a i l . I t i s not the i n t e n t i o n of t h i s t h e s i s to d i s c u s s the problems of t r a n s p o r t a t i o n f u r t h e r , but these problems must be recognized and d e a l t w i t h i n c o n j u n c t i o n w i t h a l l renewal proposals. I n d i v i d u a l 25 c h a r a c t e r i s t i c s of each c e n t r a l area and i t s surrounding r e g i o n , such as land area, f l o o r - s p a c e area, types of a c t i v i t y , daytime p o p u l a t i o n , and t r a n s p o r t a t i o n f a c i l i t i e s must be measured and i n t e r r e l a t e d i n any proposal f o r change i n order to provide the most e f f e c t i v e t r a n s p o r t a -t i o n system.5 I r r e t r i e v a b l y u n i t e d w i t h the importance of t r a n s p o r t a t i o n i s the importance of p r o v i d i n g f o r the p e d e s t r i a n i n downtown areas. Once a car i s brought to the c e n t r a l area and parked, walking becomes the h i g h l y f l e x i b l e means of t r a n s p o r t a t i o n . In c e n t r a l business d i s t r i c t s of l a r g e r c i t i e s , 90 percent of a l l d a i l y t r i p s w i t h i n the area are walking t r i p s . ^ F u r t h e r , one study has shown that as many as a t h i r d of a l l downtown purchases are a r e s u l t of "impulse-shopping" on the part of passers-by.^ By p r o v i d i n g pleasant p e d e s t r i a n p r e c i n c t s , the c i t y ' s r e t a i l areas w i l l b e n e f i t when people go out of t h e i r way to use them. Among the most a t t r a c t i v e of p e d e s t r i a n areas are those which provide squares o f f the s t r e e t area, an element of s u r p r i s e through the c u r v i n g of s t r e e t s , and a r c h i t e c t u r e which i n c l u d e s b u i l d i n g s sympathetic to each other and t o the p r o v i s i o n of sun, shade, and shadow.** A number of suggestions have been advanced to s a t i s f y some of these requirements and many, such a s - m a l l s , arcades, and wider sidewalks are i n v o l v e d i n commercial r e h a b i l i t a t i o n schemes. Once the p r i n c i p l e s of r e t a i l l o c a t i o n are thought to be s a t i s f i e d and needs f o r the t r a n s p o r t a t i o n system are recognized, the planner i s then faced w i t h areas w i t h i n the c e n t r a l business d i s t r i c t which, needing more than c o n s e r v a t i o n , would nevertheless l o s e t h e i r 26 appeal through t o t a l redevelopment or which are economically unacceptable f o r t o t a l renewal. They are o f t e n . . . anonymous s t r u c t u r e s which served w e l l i n t h e i r time and by some happy chance have come down to us i n t a c t . They may even be u g l y by contemporary t a s t e . But t h e i r honesty i s s p l e n d i d ; t h e i r wholeness can make them sweet. Touch these, and you destroy much that makes the c i t y human. Keep them and you keep the q u a l i t y of l i f e i t s e l f There i s thus a mysterious a e s t h e t i c i n the replanning of c e n t r a l areas. People today are becoming very aware of a e s t h e t i c values and thus demand them as part of the design of c i t i e s . I t may be true as Jane Jacobs has s a i d t h a t : . . . When we d e a l w i t h c i t i e s we are d e a l i n g w i t h l i f e at i t s most complex and i n t e n s e . Because t h i s i s so, there i s a b a s i c a e s t h e t i c l i m i t a t i o n on what can be done w i t h c i t i e s : A c i t y cannot be a work of a r t . ^ and f u r t h e r t h a t : . . . For a l l our conformity, we are too adventurous, i n q u i s i t i v e , e g o i s t i c and competitive to be a harmonious s o c i e t y of a r t i s t s by consensus, and, what i s more, we place a-high value upon the very t r a i t s t h a t prevent us from being so.-^ However, the challenge of r e h a b i l i t a t i o n i s to create an atmosphere which i s p h y s i c a l l y more a t t r a c t i v e and e f f i c i e n t than the present one by augmenting and improving the e x i s t i n g p h y s i c a l s t r u c t u r e . And by choosing r e h a b i l i t a t i o n , b e n e f i t s o f t e n accrue i n terms of popular support f o r p r o j e c t s since sentiment and p r i d e of place are i n v o l v e d . A t t e n t i o n to the v i s u a l q u a l i t i e s of o l d e r areas w i l l a l s o b r i n g b e n e f i t by p r e s e r v i n g t a n g i b l e evidence of h i s t o r y , by p r o v i d i n g a sense of 27 l o c a l i d e n t i f i c a t i o n , and by making the best use of e x i s t i n g s t r u c t u r e s . I 2 Improvement of the p h y s i c a l aspect of r e t a i l areas must be seen from the vantage po i n t of the r e h a b i l i t a t i o n of the s i n g l e store as w e l l as the r e h a b i l i t a t i o n of a complete commercial area. Stores have always been a composite of three p a r t s : the entrance area and f r o n t which d i s p l a y s the business w i t h i n , the salesroom where the product can be inspected and bought by the customer, and the s e r v i c e entrance f o r incoming and outgoing merchandise. In order to be s u c c e s s f u l the store f r o n t must catch the eye of the passer-by and must i d e n t i f y the s t o r e . I t should a l s o provide a means of d i s p l a y i n g merchandise and should p u l l customers i n t o the s t o r e . In designing the s t r u c t u r e of the store b u i l d i n g s i x elements are important. 1. I t should be capable of e n c l o s i n g i n t e r i o r space w i t h the fewest p o s s i b l e f i x e d p o i n t s of o b s t r u c t i o n on s a l e s f l o o r s , s e r v i c e areas, or st o r e f r o n t d i s p l a y zones. 2. I t should be adaptable to the f l e x i b l e i n s t a l l a t i o n of c i r c u l a t i o n elements. 3. I t should be f i r e p r o o f . 4. I t should permit maximum c o n s t r u c t i o n speed. 5. I t should be economical i n i n i t i a l and maintenance c o s t . 6. I t should form an a t t r a c t i v e p a t t e r n when exposed to view i n the sal e s space or on the store f r o n t but should never o f f e r unnecessary v i s u a l competition to the merchandise on d i s p l a y . ^ R e h a b i l i t a t i o n of the shopping s t r e e t can o f t e n be achieved through simply removing the c l u t t e r which accumulates, arid by re - d e s i g n i n g the 28 e s s e n t i a l elements i n a more u n i f i e d p a t t e r n . S t o r e - f r o n t s are o f t e n c l u t t e r e d w i t h awnings, marquees, overhanging s i g n s , banners and window d i s p l a y s which compete f o r a t t e n t i o n . Pavement i s o f t e n broken up by d i f f e r e n t t e x t u r e s and treatments and by man-hole covers and sidewalk e l e v a t o r s . Added to t h i s i s the general s t r e e t c l u t t e r of l i g h t standards, hydrants, s t r e e t s i g n s , t r a n s i t s i g n s , p o l i c e and f i r e - b o x e s , parking meters, l i t t e r baskets, and c u r b - r a i l i n g s . A l l these elements may be necessary but a l l can undoubtedly be improved by u n i f i c a t i o n i n design. Commercial r e h a b i l i t a t i o n can be c a r r i e d out on a s i n g l e store b a s i s , on a b l o c k b a s i s , or on an a r e a l b a s i s . The most comprehensive of a l l forms of r e h a b i l i t a t i o n i s found i n the downtown m a l l . The p r i n c i p l e s of t h i s type of development are simple: one s t r e e t , a few s t r e e t s , a few b l o c k s , or an e n t i r e downtown are taken and p r i v a t e cars and t r u c k s are banned except f o r some t r a n s i t v e h i c l e s ; the e n t i r e m a l l i s modernized and made more a t t r a c t i v e ; and amenities are i n s t a l l e d f o r shoppers and the business community. The f i r s t of these was seen i n S p r i n g f i e l d , Oregon, i n 1957 during a 10 day t r i a l and the f i r s t permanent m a l l was e s t a b l i s h e d i n Kalamazoo, Michigan. In Canada, the Sparks St r e e t M a l l i n Ottawa has become widely known. M a l l s have been c r i t i c i z e d on the b a s i s that they are s p a t i a l l y l i m i t i n g and o f t e n h a s t i l y executed without thought to the consequences but they have a l s o provided a s i g n i f i c a n t t e s t i n g ground f o r a r e a l r e h a b i l i t a t i o n . 29 S o c i a l Aspects The s o c i a l aspects and importance of commercial r e h a b i l i t a t i o n are complicated by the p e c u l i a r r e l a t i o n s h i p which any i n d i v i d u a l may have w i t h the commercial f u n c t i o n of the c i t y . The customer, the small shop-keeper, the businessman, and the c i t y o f f i c i a l s a l l have v a r y i n g i n t e r e s t s . The c e n t r a l c i t y i s b u i l t by the t o t a l p o p u l a t i o n of any one area and i s meant f o r those people. I f i t i s t o serve i t s fundamental purpose, a c i t y must be meaningful to i t s human dwe l l e r s i n terms of h e l p i n g them to lead the good l i f e . I t must provide at l e a s t s a f e t y and s e c u r i t y f o r a l l those who l i v e i n i t or v i s i t i t . I t must hold out the prospect to i t s i n h a b i t a n t s of the opportunity to earn t h e i r l i v e l i h o o d s . I t must provide the i n s t i t u t i o n s and o p p o r t u n i t i e s f o r education, f o r c u l t u r a l c r e a t i v e n e s s , f o r s e l f - e x p r e s s i o n , f o r r e s t , d i v e r s i o n , r e l a x a t i o n and freedom of movement. No c i t y has perhaps served these ends p e r f e c t l y . But the c l a i m of any c i t y to d i s t i n c t i o n can only be based upon the degree to which i t enables those who dw e l l w i t h i n i t s confines t o achieve the d e s i r a b l e goals of l i f e . 1 4 The concepts expressed i n t h i s quotation are perhaps ideal:, however, they emphasize the f a c t that i n the downtown area where many people are brought together d a i l y , communication, exchange of goods, and exchange of ideas are maximized. I t i s t h i s unique type of s o c i a l s t r u c t u r e spawned by the c i t y which must be encouraged i n any downtown r e v i t a l i z a t i o n . To r e l a t e the commercial f u n c t i o n s p e c i f i c a l l y to the s o c i a l aspects of c i t y l i f e i t should be noted that two d i s t i n c t f u n c t i o n s are performed. From the c i v i c and s o c i a l viewpoint the v a r i o u s shops, s t o r e s , and o f f i c e s not only serve the p u b l i c but a l s o provide a f o c a l point i n 30 t h e i r i n d i v i d u a l area. Each s t r u c t u r e provides a d i f f e r e n t type of t e x t u r e i n the l i f e of the c i t y . The r e l a t i o n s h i p between the customer and the downtown r e t a i l o u t l e t i s one which has been much stud i e d i n past years.*-' The r e s u l t s of these s t u d i e s must be a p p l i e d i n any commercial r e h a b i l i t a t i o n . J u s t as merchants s t r i v e f o r a unique q u a l i t y i n t h e i r e n t e r p r i s e s , so t h e i r customers tend to separate themselves i n t o v a r i o u s s o c i a l c l a s s e s as represented by t h e i r consumption patterns and purchasing of p r e s t i g e symbols. The most evident form of buying behaviour i s probably found i n the p a t r o n i z a t i o n of e x c l u s i v e " c a r r i a g e t r a d e " or s p e c i a l t y shops by the upper-middle and upper s o c i a l c l a s s e s . There are a l s o a number of other f a c t o r s which must be taken i n t o account and these have been documented by George S t e r n l i e b i n h i s study The Future of the Downtown Department S t o r e . ^ The average consumer today has more l e i s u r e time, more means to enjoy i t , and more goods and a c t i v i t i e s that compete f o r h i s a t t e n t i o n . For t h i s reason, the downtown area must work harder than ever before to a t t r a c t the customer. The consumer i s now spending l e s s on general merchandise and more on n o n - r e t a i l o u t l e t s . While shopping has t r a d i t i o n a l l y been regarded as one of the most pl e a s u r a b l e a c t i v i t i e s of a woman's l i f e , i t s p o s i t i o n i s now challenged by an assortment of other a c t i v i t i e s . Women now demand an i n t e r e s t i n g and a t t r a c t i v e atmosphere as w e l l as the s a t i s f a c t i o n guaranteed by comparison shopping to f i n d a good b a r g a i n . In a d d i t i o n , demand f o r convenience and a f a m i l y o r i e n t a t i o n t o shopping have brought success t o the suburban shopping center t o the d i s c r e d i t of the downtown area. Downtown has, however, 31 r e t a i n e d i t s lead i n terms of the entertainment f u n c t i o n and i t i s hoped that t h i s may be c a p i t a l i z e d upon i n downtown r e v i t a l i z a t i o n programs. From the viewpoint of c i v i c and business o f f i c i a l s the task of commercial r e h a b i l i t a t i o n becomes a r e s p o n s i b i l i t y . The need f o r r e h a b i l i t a t i o n must f i r s t be recognized and t h i s has been done i n many c i t i e s . For example, i n a Lancaster, Pennsylvania businessman's q u e s t i o n n a i r e , the men i n d i c a t e d a knowledge of downtown's s t r u g g l e f o r s u r v i v a l and f e l t that downtown improvement must be the j o i n t r e s p o n s i -b i l i t y of both p u b l i c and p r i v a t e bodies.17 The i n i t i a t i v e may a l s o come from the l o c a l government a u t h o r i t y ; the l o c a l Board of Trade, Chamber of Commerce, or a p a r t i c u l a r s t r e e t a s s o c i a t i o n ; a l o c a l c i v i c or planning a s s o c i a t i o n ; a l o c a l group of a r c h i t e c t s ; the l o c a l p ress, r a d i o , or t e l e v i s i o n s t a t i o n ; or from a s p e c i a l i n t e r e s t group. Once the p r o j e c t i s under way i t i s important that a r e s p o n s i b l e group coordinate the work of the p r o j e c t to achieve a s u c c e s s f u l t o t a l e f f e c t as w e l l as to s a t i s f y each "of the i n v o l v e d merchants. 32 Economic Aspects The f i e l d of urban land economics and i t s s o p h i s t i c a t e d methods of a n a l y s i s provide an e x c e l l e n t b a s i s f o r the e v a l u a t i o n of urban renewal p r o j e c t s . The economics of a commercial r e h a b i l i t a t i o n p r o j e c t o f t e n s p e l l out i t s success or f a i l u r e . For the c e n t r a l business d i s t r i c t there are three methods which are commonly used t o determine i t s strength: r e t a i l s a l e s v a l u e , land v a l u e s , and daytime population. 1** R e t a i l s a l e s are a measure of the economic v i a b i l i t y of the CBD since shopping goods are o f t e n concentrated i n t h i s area. F i g u r e s quoted by John Rannels i n h i s a r t i c l e "Approach to A n a l y s i s " i n d i c a t e the economic reasons f o r concern i n many c e n t r a l business d i s t r i c t s i n 19 1954. The f o l l o w i n g t a b l e from h i s work i s of i n t e r e s t . TABLE 1 POPULATION EXPANSION RATIO AND CHANGE IN CBD SALES Number of CBD's Population Expansion R a t i o Percentage Change CBD Sales 1943-1954 7 0.70-0.99 +5.7 7 1.00-1.39 +4.7 9 1.40-1.79 +3.8 7 1.80-1.99 +2.6 10 2.00-2.99 -0.9 8 3.00 or more -0.9 SOURCE: U.S. O f f i c e of Area Development, C e n t r a l Business D i s t r i c t s and Their M e t r o p o l i t a n Areas: A Summary of^Graphic S h i f t s i n Sales Volume, 1948-1954, S t a f f Paper Number 5 (Washington, D.C.: Department of Commerce, 1957) 33 This i n d i c a t e s that gains were g e n e r a l l y o c c u r r i n g i n areas w i t h l e s s than 250,000 p o p u l a t i o n , r a p i d l y expanding areas having s u f f e r e d from the e f f e c t s of d e c e n t r a l i z a t i o n . 2 ^ The "'population expansion r a t i o " r e f e r s to the percent growth i n the m e t r o p o l i t a n area d i v i d e d by the percent growth i n the c e n t r a l area. As shopping centers have been b u i l t i n smaller c i t i e s i n the past ten years, they too have f e l t a l o s s i n CBD s a l e s . Use of land value as a measure of CBD strength i s o f t e n h e l p f u l since the highest land value i s most o f t e n found i n the center of the r e t a i l shopping d i s t r i c t where the p e d e s t r i a n t r a f f i c i s h e a v i e s t . A study of the h i e r a r c h y of CBD land uses i n terms of land values suggests that the o f f i c e core of a c i t y i n c l u d i n g prime o f f i c e space, p r e s t i g e r e t a i l s t o r e s , and s e r v i c e and restaurant f u n c t i o n s supports a land value of from $50.00 to $25.00 per square f o o t . The r e t a i l core land value i s from $25.00 to $15.00 per square foot.21 Connected w i t h the value of land and improvements are the f a c t o r s of rent and taxes. The p r o d u c t i v i t y of any use w i t h i n the c e n t r a l business d i s t r i c t w i l l determine the rent which i t i s able t o pay and thus the land which i t can "afford t o occupy and the kind of improvements which i t can a f f o r d to make. Programs f o r expensive improvements may f o r c e low p r o d u c t i v i t y uses t o r e l o c a t e i n other p a r t s of the c i t y . In a d d i t i o n t o the cost of improvements r e n t e r s must o f t e n face increased costs i n the form of increased assessment on a l l improvements made. C i t i e s depend on the CBD f o r a considerable p o r t i o n of t h e i r tax base and thus cannot a f f o r d to have b l i g h t e d areas which decrease assessment and increase s e r v i c e 34 c o s t s . The e f f e c t of t o t a l redevelopment i s g r a p h i c a l l y demonstrated i n i n f o r m a t i o n c o l l e c t e d by the American M u n i c i p a l A s s o c i a t i o n which r e p o r t s that i n a survey of 123 c i t i e s having a t o t a l of 294 urban renewal p r o j e c t s , taxes before redevelopment were $26 m i l l i o n w h i l e taxes a f t e r redevelopment were estimated at $93 m i l l i o n . ^ 2 Many businesses cannot, however, a f f o r d the increased taxes which are l e v i e d on improvements. This s i t u a t i o n provides one time when o u t l y i n g business areas can help the CBD f o r they c a r r y part of the tax l o a d . The importance of the p e d e s t r i a n to the CBD has already been mentioned as a source of s t r e n g t h . The daytime pop u l a t i o n a t t r a c t e d to v a r i o u s s e c t i o n s of the downtown area i s a good i n d i c a t i o n of areas of h i g h land v a l u e . Primary among c o n s i d e r a t i o n s i n commercial r e h a b i l i t a t i o n pro-j e c t s are the economic co s t s and the economic e f f e c t s . Costs of such p r o j e c t s are u s u a l l y borne at three l e v e l s . F i r s t are m u n i c i p a l costs f o r new s e r v i c e s , s t r e e t c o n s t r u c t i o n , and parking f a c i l i t i e s . There w i l l be cooperative c o s t s f o r improvements which are being made j o i n t l y by property owners as i n the case of an arcade. F i n a l l y there w i l l be i n d i v i d u a l c o s t s f o r improvements made to i n d i v i d u a l b u i l d i n g s . Problems o f t e n a r i s e when bond issues must be f l o a t e d by c i t i e s or taxes must be increased i n order to provide finances f o r downtown area improvements. For the i n d i v i d u a l property owner and the merchants, loans are o f t e n needed to make improvements. I t i s at t h i s p o i n t that the r o l e s of the p u b l i c sector of the economy and the p r i v a t e sector 35 become c l e a r . As w i l l be discussed i n the next s e c t i o n , the p u b l i c sector p r e s e n t l y c o n t r i b u t e s l a r g e l y at the m u n i c i p a l l e v e l under present l e g i s l a t i v e p r o v i s i o n s f o r commercial r e h a b i l i t a t i o n . The r a t i o of expenditure between the p u b l i c and the p r i v a t e sector f o r t o t a l redevelopment was pointed out by W i l l i a m Slayton i n 1965 when he stated that f o r every d o l l a r that has been spent f o r the f e d e r a l l y a s s i s t e d Urban Renewal Program i n the United S t a t e s , $6.50 has been spent f o r p h y s i c a l improvements by redevelopers i n the redevelopment areas.^3 The p r i v a t e sector of the economy i s thus very important i n renewal p r o j e c t s , p a r t i c u l a r l y as i t has been estimated that to renew a l l American c i t i e s w i t h i n a twelve year p e r i o d (by the current theory of urban renewal) would cost approximately one t r i l l i o n d o l l a r s . ^ P r i v a t e e n t e r p r i s e does not h e s i t a t e to take part i n renewal p r o j e c t s i f these p r o j e c t s are c l e a r l y economically f e a s i b l e . C a p i t a l investment i n commercial property, i n comparison to other forms of investment, can be very p r o f i t a b l e . C a p i t a l invested i n the improvement of commercial property may permit increased r e n t , p a r t i c u l a r l y when merchants* sa l e s i n c r e a s e . A major problem f o r p r i v a t e e n t e r p r i s e i n present government-sponsored renewal e f f o r t s i s that f i n a n c i a l r e t u r n s are slow i n coming i n renewal p r o j e c t s . Furthermore, when p r o j e c t s are announced which i n v o l v e a developer, i n d i v i d u a l property owners may neglect b u i l d i n g maintenance thus i n c r e a s i n g c o s t s . F i n a l l y , i n i t i a t i o n of these p r o j e c t s i s o f t e n not adequately r e l a t e d t o the immediate c a p a b i l i t i e s of the p r i v a t e f i n a n c i a l market. 36 There are many economic e f f e c t s of commercial r e h a b i l i t a t i o n , some of which have been mentioned p r e v i o u s l y . Such p r o j e c t s i n v o l v e changes i n the c a p i t a l c o s t s to the c i t y and i n t h e i r tax revenues. They a l s o i n v o l v e adjustment of p r i o r i t i e s w i t h i n the c i t y ' s budget. There w i l l be e f f e c t s on e x i s t i n g r e n t e r s and property owners, on surrounding property v a l u e s , and on r e a l e s t a t e v a l u a t i o n w i t h i n the whole downtown area. A l l these f a c t o r s must be taken i n t o account i n determining a p r o j e c t ' s economic f e a s i b i l i t y . S e veral economic a i d s have been suggested that may encourage commercial renewal. Among these are r e g i o n a l renewal banks, tax s u b s i d i e s , cumpulsory purchase of land and b u i l d i n g s , and condominium ownership. I t has been suggested that a r e g i o n a l system of renewal and development banks, s i m i l a r to the American Federal Home Loan Bank, would permit more r a p i d and e f f e c t i v e l o c a l renewal programs.25 Tax s u b s i d i e s to avoid problems of increased assessment have been t r i e d i n some redevelopment p r o j e c t s . For example, i n the Kansas C i t y , M i s s o u r i Parade Park p r o j e c t , assessment was set at the land assessment of the o r i g i n a l p r o p e r t i e s before a c q u i s i t i o n f o r ten years, and at 50 percent of the assessed value of the land and new improvement f o r f i f t e e n years before f u l l assessment a f t e r twenty-five years.26 In Canada, the budget of June 21st, 1961, introduced a s p e c i a l s e c t i o n ( S e c t i o n 1109 of the amendments to the Income Tax Act) the sta t e d purpo of which was to encourage Canadian business to become more com p e t i t i v e . While a l l o p e r a t i n g expenses f o r each year may be claimed, c a p i t a l expenses such as b u i l d i n g s can only be claimed over a p e r i o d of time. 37 This i s known as c a p i t a l cost allowance. This amendment allowed f o r a 15 percent r a t h e r than 10 percent r a t e on the y e a r l y c a p i t a l assets allowance. The l a r g e r expense c l a i m permitted business the use of more money f o r modernization purposes. This amendment was rescinded i n March of 1964. Because of the small percentage change (only f i v e percent) and through ignorance, t h i s amendment was not wid e l y used by small business. The government 1s i n t e n t was undoubtedly to encourage the export p o s s i b i l i t i e s of large businesses. However, t h i s type of l e g i s l a t i o n i l l u s t r a t e s a type of tax subsidy which has been the source of both approval and d i s a p p r o v a l . In Great B r i t a i n , L o c a l Planning A u t h o r i t i e s have the r i g h t to secure u n i f i e d ownership of land by cumpulsory purchase w i t h the approval of the M i n i s t e r of Town and Country Planning. In the case of commercial r e h a b i l i t a t i o n t h i s process has been avoided since i t i s elaborate and cumbersome, i n v o l v e s heavy c a p i t a l expenditure and may mean that c a p i t a l invested i s u n a v a i l a b l e f o r a number of years before income i s re c e i v e d to repay loans t a k e n . 2 ^ Another more r e c e n t l y advanced concept, both l e g i s l a t i v e and economic, i s that of Condominium i n which an i n d i v i d u a l u n i t of land or a b u i l d i n g can be owned o u t r i g h t by i t s i n d i v i d u a l occupant, w h i l e other p o r t i o n s intended f o r common use are j o i n t l y owned by the owner-occupants of a l l the u n i t s w i t h i n the Condominium p r o j e c t . This may permit u n i f i e d a c t i o n on r e h a b i l i t a t i o n programs. Suggestions f o r economic remedies t o urban renewal problems w i l l probably be f r e q u e n t l y advanced i n the f u t u r e . Economic s o l u t i o n s i n conjunction w i t h l e g i s l a t i v e and other p r o v i s i o n s are now p r o v i d i n g f o r many t o t a l redevelopment programs and s i m i l a r p r o v i s i o n s may be used f o r commercial r e h a b i l i t a t i o n i n the f u t u r e . 38 L e g i s l a t i v e Aspects As i t i s extremely d i f f i c u l t f o r many m u n i c i p a l i t i e s t o under-take any form of comprehensive downtown renewal without f i n a n c i a l h e l p , l e g i s l a t i v e p r o v i s i o n s are now being made i n the Canadian and American f e d e r a l urban renewal l e g i s l a t i o n to help CBD renewal programs. In cont r a s t to the s i t u a t i o n i n the United States and Canada, c i t i e s i n Great B r i t a i n have been given extensive means t o c a r r y out renewal pro-grams. They possess f a r - r e a c h i n g powers of e x p r o p r i a t i o n and, w h i l e tenders are s o l i c i t e d from p r i v a t e e n t e r p r i s e f o r redevelopment p r o j e c t s , the c i t y o f t e n r e t a i n s the f r e e h o l d of the s i t e . 2 8 Although the subject of commercial r e h a b i l i t a t i o n w i l l not be discussed to any great extent w i t h respect to Great B r i t a i n , i t should be noted that the Norwich, England r e h a b i l i t a t i o n p r o j e c t stands as an e x c e l l e n t monument t o l o c a l government and p r i v a t e e n t e r p r i s e cooperation. In the United S t a t e s , urban renewal l e g i s l a t i o n has u n t i l r e c e n t l y d e a l t mainly w i t h slum clearance and the p r o v i s i o n of housing. The year 1892 saw the f i r s t government study made of slums, w i t h 1929 b r i n g i n g laws to promote the p r o v i s i o n of housing. The Emergency R e l i e f and Reconstruction Act of 1932, the N a t i o n a l I n d u s t r i a l Recovery Act of 1933, and the United S t a t e s Housing Act of 1937 extended these pro-v i s i o n s , w i t h the l a t t e r Act d e a l i n g p a r t i c u l a r l y w i t h slum c o n d i t i o n s . Before 1949, urban redevelopment s t a t u t e s were adopted i n 23 s t a t e s and the D i s t r i c t of Columbia. The Housing Act of 1949 organized and a m p l i f i e d previous l e g i s l a t i o n , provided a statement of n a t i o n a l housing 39 p o l i c y , and permitted F e d e r a l advances t o finance the planning of urban redevelopment p r o j e c t s as w e l l as i n t e r i m loans to provide working c a p i t a l . The Housing Act of 1954 again d e a l t only w i t h housing p o l i c y but i t d i d encourage the use of conservation and r e h a b i l i t a t i o n i n r e s i d e n t i a l renewal. Previous to 1954 r e h a b i l i t a t i o n programs were undertaken through systematic enforcement of housing codes and ordinances. An amendment to the 1954 l e g i s l a t i o n permitted 10 percent of the Federal grant fund to be used f o r other than r e s i d e n t i a l renewal. In 1959, a u t h o r i z a t i o n was given to grants f o r renewal s t u d i e s of e n t i r e communities and permitted 20 percent of Fede r a l grants f o r p r o j e c t s other than r e s i d e n t i a l . This percentage was r a i s e d to 30 percent i n 1961 r e f l e c t i n g the government's increased awareness of the importance of c e n t r a l c i t y r e v i t a l i z a t i o n . The t o t a l sum authorized f o r the urban renewal program was four b i l l i o n d o l l a r s , completion of the 1963 f i s c a l year being the end of the grant p e r i o d . The Housing and Urban Development Act of 1965 contains s e v e r a l new p r o v i s i o n s which are of i n t e r e s t : 1. A program of rent supplements has been authorized t o make housing a v a i l a b l e to low-income i n d i v i d u a l s and f a m i l i e s . ( S e c t i o n 101); 2. Grants can be made to a s s i s t i n l o c a l programs f o r the greater use and enjoyment of open-space and other p u b l i c land i n urban areas ( S e c t i o n 906); 3. T h i r t y - f i v e percent of the a d d i t i o n a l c a p i t a l grant a u t h o r i t y i s to be used f o r areas which are not pre-dominantly r e s i d e n t i a l i n character and which w i l l be redeveloped and r e h a b i l i t a t e d f o r uses not predominantly r e s i d e n t i a l ( S e c t i o n 308); 40 4. An a u t h o r i z a t i o n of a p p r o p r i a t i o n s of up t o $100 m i l l i o n per year i s provided f o r the l o w - i n t e r e s t r a t e Federal r e h a b i l i t a t i o n loans f o r homes and businesses i n urban renewal areas and code-enforcement areas. ( S e c t i o n 312); 5. A program of lease guarantees i s authorized under which c e r t a i n leases w i l l be guaranteed where the small businesses are e l i g i b l e f o r d i s a s t e r loans under the Small Business Act or f o r loans under the a n t i p o v e r t y law. (Sec t i o n 316).29 On A p r i l twenty-seventh, 1966, Senator John Sparkman introduced l e g i s l a t i o n to " a u t h o r i z e f i n a n c i a l a s s i s t a n c e f o r urban renewal pro-j e c t s i n v o l v i n g the c e n t r a l business d i s t r i c t . . . ." Among h i s suggestions are: 1. o f f i c i a l r e c o g n i t i o n that the commercial, i n d u s t r i a l and c u l t u r a l f u n c t i o n s of the c e n t r a l business d i s t r i c t are e s s e n t i a l to a v i a b l e and sound c i t y ; 2. a u t h o r i t y f o r r e h a b i l i t a t i o n and a c q u i s i t i o n of h i s t o r i c s t r u c t u r e s i n the CBD; 3. st a g i n g of downtown p r o j e c t s on a f u n c t i o n a l b a s i s r a t h e r than a geographic b a s i s ; 4. extension of the time a l l o t t e d f o r executing complicated downtown projects.30 In the Canadian case, as i n the United S t a t e s , the i n i t i a t i v e f o r urban renewal a c t i v i t y i s the r e s p o n s i b i l i t y of the m u n i c i p a l i t i e s , the senior governments h e l p i n g i n ways s p e c i f i e d by l e g i s l a t i o n . The l e g i s l a t i o n governing renewal i s p r o v i n c i a l and f e d e r a l . An '"urban renewal area" i s defined by Se c t i o n 23 of the N a t i o n a l Housing Act to be "a b l i g h t e d or substandard area of a m u n i c i p a l i t y f o r which the government of the province i n which the area i s loc a t e d has approved the implementation of an urban renewal scheme." E a r l y l e g i s l a t i o n 41 f o l l o w s a s i m i l a r p a t t e r n to that of the United States and i s b r i e f l y summarized here. The Dominion Housing Act passed i n 1935 empowered the government to j o i n w i t h l e n d i n g a s s o c i a t i o n s to a i d the c o n s t r u c t i o n of housing and t h i s Act was replaced i n 1938 by the N a t i o n a l Housing A c t . The Home Improvement Loans Guaranteeing Act adopted i n 1937 contained a guarantee, l i m i t e d t o 15 percent of the loans made by any one i n s t i t u t i o n , against l o s s e s which they might i n c u r as a r e s u l t of home improvement loans made by them. When i t was r e a l i z e d that e x i s t i n g l e g i s l a t i o n d i d not provide f o r those who could not a f f o r d homes, the N a t i o n a l Housing Act of 1944 provided Federal government a s s i s t a n c e f o r slum clearance i n conjunction w i t h p r i v a t e f i n a n c i a l c o r p o r a t i o n s . Between 1944 and 1949 f u r t h e r l e g i s l a t i o n was added to persuade p r i v a t e e n t e r p r i s e to construct r e n t a l housing. Amendments t o the N a t i o n a l Housing Act i n 1949 gave a i d d i r e c t l y to slum clearance and amendments i n 1954 included p u b l i c b u i l d i n g s as an acceptable re-use of land, re-use p r e v i o u s l y having been r e s t r i c t e d to r e s i d e n t i a l development. The 1956 amendments began to broaden the scope of the l e g i s l a t i o n and remove i t from the s t r i c t l y housing concept. They allowed that the Federal government would match amounts spent by m u n i c i p a l i t i e s and the invo l v e d province on "c l e a r a n c e , r e p l a n n i n g , r e h a b i l i t a t i o n , and modernization of b l i g h t e d areas." ( N a t i o n a l Housing Act 1954, Chapter 23, Part I I I , S e c t i o n 2 3 ( 1 ) ) . The re-use p r o v i s i o n was r e s t r i c t e d o n l y to the most e f f e c t i v e use of the land and f i n a n c i a l a i d was to be given f o r s p e c i a l s t u d i e s of urban c o n d i t i o n s . 42 The 1964 amendments to the N a t i o n a l Housing Act have widened the r o l e of the Federal government p a r t i c u l a r l y i n the f i e l d of r e h a b i l i t a t i o n . R e h a b i l i t a t i o n i s now supported through a system of loans or grants to m u n i c i p a l i t i e s , w i t h p r o v i s i o n f o r insured or d i r e c t loans to i n d i v i d u a l s f o r r e h a b i l i t a t i o n i n a designated urban renewal scheme. In summary then, the Federal government i s now permitted: 1. to bear h a l f the cost of a c q u i r i n g and c l e a r i n g a sub-standard area and a l s o of pre p a r i n g the s i t e f o r d i s p o s a l even where there i s no housing content, e i t h e r e x i s t i n g or proposed; 2. to bear h a l f the cost of i n s t a l l i n g m u n i c i p a l s e r v i c e s or works, other than b u i l d i n g s , i n any renewal area i n c l u d i n g areas scheduled f o r r e h a b i l i t a t i o n r a t h e r than clearance; 3. to bear h a l f the cost of employing s t a f f or consultants i n connection w i t h a c q u i s i t i o n , clearance, r e l o c a t i o n , p u b l i c i n f o r m a t i o n and the a s s i s t a n c e of a f f e c t e d property owners; 4. to lend to a province or m u n i c i p a l i t y up to two-thirds of the a c t u a l cost of implementing a renewal scheme, a f t e r the deduction of f e d e r a l grants, and 5. to insure loans made by approved lenders to the owners of housing scheduled f o r r e h a b i l i t a t i o n i n urban renewal areas. These loans, up to 85 percent of the le n d i n g value a f t e r r e h a b i l i t a t i o n , are secured by f i r s t mortgage and a l l o w f o r the discharge of e x i s t i n g encumbrances. Should lenders be u n w i l l i n g to in v e s t i n a renewal area CMHC i s empowered to make a d i r e c t l o a n . 3 1 Seventy-five percent of the cost of urban renewal s t u d i e s had been a v a i l a b l e to m u n i c i p a l i t i e s under the N a t i o n a l Housing Act and i n 1964 a 50 percent f e d e r a l grant was announced f o r s t u d i e s i n v o l v i n g i n d i v i d u a l urban renewal schemes, schemes which were o f t e n suggested by e a r l i e r renewal studies.32 43 Summary to Chapter Three In recent years s o l u t i o n s to the problems of the downtown areas of our c i t i e s have dwelt t o a great extent on improvements i n t r a n s -p o r t a t i o n and on urban renewal measures. Commercial r e h a b i l i t a t i o n i s j u s t one part of these measures. The reasons, methods, and e f f e c t s i n v o l v e d i n commercial r e h a b i l i t a t i o n have been presented, o f t e n without c r i t i c a l comment, i n t h i s chapter. For the sake of convenience they have been d i v i d e d i n t o t h e i r p h y s i c a l , s o c i a l , economic and l e g i s l a t i v e f a c e t s but i t must be remembered that these f a c e t s are a l l interdependent. I t w i l l be the task of the next chapter to examine the progress of commercial r e h a b i l i t a t i o n p r o j e c t s under present l e g i s l a t i v e p r o v i s i o n s i n the l i g h t of f a c t s discussed i n t h i s chapter. 44 Footnotes to Chapter Three ^ S h i r l e y F. Weiss, The C e n t r a l Business D i s t r i c t i n T r a n s i t i o n : Methodological Approaches to CBD A n a l y s i s and F o r e c a s t i n g Future Space Needs, C i t y and Regional Planning S t u d i e s , Research Paper No. 1 (Chapel H i l l : Department of C i t y and Regional Planning, U n i v e r s i t y of North C a r o l i n a , 1957), p. 5. ^Richard L. Nelson, The S e l e c t i o n of R e t a i l Locations (New York: Dodge, 1958), p. 52 f f . 3 I b i d . , p. 58. I b i d . , p. 66. -\J. Douglas C a r o l l , J r . , Roger L. Creighton, and John R. Hamburg, "T r a n s p o r t a t i o n Planning f o r C e n t r a l Areas," J o u r n a l of the American I n s t i t u t e of Planners, XXVII (February, 1961), p. 26. Robert L. M o r r i s and S.B. Zisman, "The Pedestrian Downtown, and the Planner," J o u r n a l of the American I n s t i t u t e of Planners, XXVIII (February, 1961), p. 152. 7-Real Estate Research Co r p o r a t i o n , Economic A n a l y s i s of R e t a i l F a c i l i t i e s of the C e n t r a l Business D i s t r i c t of Cleveland, Ohio (Cleveland: Cleveland C i t y Planning Commission, 1958), p. 13. °M.R. Wolfe, "Shopping S t r e e t s and the Pedestrian Rediscovered," American I n s t i t u t e of A r c h i t e c t s J o u r n a l , XXXVII (May, 1962), p. 33-42. 9August Heckscher,assquoted i n Marian Page, "Shopping Oasis i n the Impersonal C i t y , " I n t e r i o r s , XXV ( J u l y , 1966), p. 75. i U J a n e Jacobs, "A C i t y i s Not a Work of A r t , " M e t r o p o l i s : values i n c o n f l i c t , C.E. E l i a s , J r . , James G i l l i e s , and Svend Reimer, E d i t o r s , (Belmont, C a l i f o r n i a : Wadsworth P u b l i s h i n g Co., 1964), p. 106. 45 •'•'•Patrick Horsbrugh, " P r i d e of P l a c e . An Argument i n Favour of V i s u a l D i v e r s i t y i n the Urban Scene," Queen's Qua r t e r l y . LXVII, 4, (Winter, 1961), p. 620. 13 i J M o r r i s Ketchum, J r . , shops and st o r e s (New York: Reinhold P u b l i s h i n g Co., 1948), p. 118. 1 4O.H. S t e i n e r , Downtown, U.S.A. (Dobbs F e r r y , New York: Oceana P u b l i c a t i o n s , 1964), p. 21. 1 5 P . Martineau, "The P e r s o n a l i t y of the R e t a i l S t o r e , " Harvard Business Review. XXXVI, 1 (January-February, 1956),pp. 47-55. P. Martineau, " S o c i a l C l a s s and Spending Behaviour," J o u r n a l of Marketing. X X I I I , 2 (October, 1958), pp. 121-130. ^George S t e r n l i e b , The Future of the Downtown Department Store, (Cambridge: J o i n t Center f o r Urban Studies of the MIT and Harvard U n i v e r s i t y , 1962), pp. 23-27. ^ L a n c a s t e r C i t y Planning Commission, Lancaster's C e n t r a l Business D i s t r i c t . A Study (Lancaster, Pennsylvania: The C i t y , 1958), pp. 49-51. l % e i s s , op. c i t . . p. 17. ^ J o h n R a n n e l l s , "Approaches to A n a l y s i s , " J o u r n a l of the American I n s t i t u t e of Planners. XXVIII (February, 1961), p. 19. 20 I b i d . 2 1 L a r r y Smith, "Space f o r the CBD's Functions," J o u r n a l of the American I n s t i t u t e of Planners, XXVII (February, 1961), p. 19. 2 2M. C a r t e r McFarland, The Challenge of Urban Renewal, Urban Land I n s t i t u t e T e c h n i c a l B u l l e t i n No. 34 (Washington: The Urban Land I n s t i t u t e , 1958), p. 19. 46 l k e r and Murray A s s o c i a t e s , Inc., C e n t r a l C i t y A c t i o n Development Plan f o r a b e t t e r Akron, Ohio ( P h i l a d e l p h i a , Pa.: Walker and Murray A s s o c i a t e s , Inc., 1965), p. 33. 2 4 J o h n W. Dyckman and Reginald R. Isaacs, C a p i t a l Requirements f o r Urban Development and Renewal (New York: McGraw H i l l Book Co., 1961). 2 5 A r thur M. Weimer, "A Regional Bank System f o r Urban Renewal and Development,™ The A p p r a i s a l J o u r n a l , XXIX, 1 (1961), p. 7. Hunter Moss, "Economic Aspects of Town Center Development,"1 Urban Land, XXIV, 7 (July-August, 1965), p. 11. i v i c T r u s t , R e b u i l d i n g C i t y Centres, Report of Conference hel d at Middlesex G u i l d h a l l F r i d a y , J u l y 15, 1960 (London: The C i v i c T r u s t , 1960),pp. 6-7. 28journal of the Town Planning I n s t i t u t e , "Complexities of Town Centre Development," The J o u r n a l of the Town Planning I n s t i t u t e , L I , 6 (June, 1965), p. 230. 29information on United States urban renewal l e g i s l a t i o n i s from summaries given i n the f o l l o w i n g : M. Carter McFarland, The Challenge of Urban Renewal, op. c i t . W i l l i a m L. S l a y t o n , Report on Urban Renewal, Statement of W i l l i a m L. S l a y t o n , Commissioner, Urban Renewal A d m i n i s t r a t i o n before the United States House of Representatives, Committee on Banking and Currency, Subcommittee on Housing (Washington, D.C.: U.S. Government P r i n t i n g O f f i c e , November 21, 1963). United S t a t e s , House of Representatives, Committee on Banking and Currency, H i g h l i g h t s of the Housing and Urban Development Act of 1965 (Washington, D.C.: U.S. Government P r i n t i n g O f f i c e , August 11, 1965). 3 0Downtown Idea Exchange, X I I I , 4 ( J u l y 15, 1966). 47 •^Stanley H. P i c k e t t , "An A p p r a i s a l of the Urban Renewal Program i n Canada," A Paper read at the Graduate School of P u b l i c and I n t e r n a t i o n a l A f f a i r s , U n i v e r s i t y of P i t t s b u r g h , March 17 and 18, 1965, p. 3. •^Information on Canadian Urban Renewal l e g i s l a t i o n i s from summaries given i n the f o l l o w i n g : M e t r o p o l i t a n Toronto Planning Board, The Role of P r i v a t e E n t e r p r i s e -in Urban Renewal, A Study c a r r i e d out by Murray V. Jones under contract w i t h the M e t r o p o l i t a n Toronto Planning Board (Toronto: M e t r o p o l i t a n Toronto Planning Board, March, 1966). U n i v e r s i t y of B r i t i s h Columbia, Graduate Students i n Community and Regional Planning, The Progress of Urban Renewal i n Canada: A C r i t i c a l E v a l u a t i o n (Vancouver, B.C.: D i v i s i o n of Community and Regional Planning Board, U n i v e r s i t y of B.C., December, 1965). CHAPTER FOUR COMMERCIAL REHABILITATION PROJECTS UNDER PRESENT LEGISLATIVE PROVISIONS . . . We w i l l transmit t h i s c i t y not only not l e s s , but greate r , b e t t e r , and more b e a u t i f u l than i t was tr a n s m i t t e d to us. from the Oath of the Athenian C i t y State The process of r e c r e a t i n g environments f o r l i v i n g and working -the process of urban renewal - i s p r e s e n t l y employed i n most major c i t i e s i n the United States and Canada. I t i s a process which i s as c o s t l y as i t i s expansive and i s , of n e c e s s i t y , never-ending. V a r i a t i o n s i n the methods and approaches of urban renewal are con-s i d e r a b l e and may in v o l v e redevelopment, r e h a b i l i t a t i o n , and conserva-t i o n and, i n most cases, a combination of a l l t h r e e . For t h i s reason i t i s d i f f i c u l t to examine any one p a r t i c u l a r aspect; f o r example, to i s o l a t e the r e h a b i l i t a t i o n of commercial s t r u c t u r e s and study the process of t h i s type of renewal. Although i n t h i s chapter the r e s u l t s of an attempt t o study commercial r e h a b i l i t a t i o n p r o j e c t s are presented, i t must be remembered that these programs are part of a l a r g e r renewal program. Their success depends not only on what they accomplish i n themselves but on what the t o t a l program accomplishes and on how s u c c e s s f u l l y the program i s i n t e g r a t e d w i t h the needs of the p a r t i c u l a r c i t y . 48 49 Methodology Examination of commercial r e h a b i l i t a t i o n p r o j e c t s has been c a r r i e d out by the f o l l o w i n g method. Questionnaires (see Appendix A) were sent t o Canadian and American c i t i e s to determine: 1. the meaning attached to ' r e h a b i l i t a t i o n of commercial areas w i t h i n the c e n t r a l business d i s t r i c t ; 2. the extent of r e h a b i l i t a t i o n p r o j e c t s i n execution or being planned f o r Canadian and American c i t i e s ; 3. the source of i n s p i r a t i o n f o r these p r o j e c t s ; 4. the problems encountered w i t h these p r o j e c t s . The s e l e c t i o n of c i t i e s to be studied was made as a r e s u l t of correspondence w i t h the C e n t r a l Mortgage and Housing Corporation of Canada and w i t h the Department of Housing and Urban Development of the United S t a t e s . Names of seven Canadian c i t i e s and twenty-one American c i t i e s were s u p p l i e d , which, according to these agencies, had government-sponsored r e h a b i l i t a t i o n p r o j e c t s . Of the twenty-one American c i t i e s contacted, seventeen r e p l i e d to the qu e s t i o n n a i r e , but i n the Canadian group only Toronto f e l t t h a t i t was s u f f i c i e n t l y advanced i n i t s r e h a b i l i t a t i o n program to r e p l y . Appendix B contains the names of i n d i v i d u a l s who r e p l i e d by l e t t e r to the qu e s t i o n n a i r e . The r e p l y r e c e i v e d from O a k v i l l e , Ontario gave some idea of a p r i v a t e l y sponsored r e h a b i l i t a t i o n p r o j e c t i n a Canadian c i t y . Information on the government-sponsored r e h a b i l i t a t i o n p r o j e c t , B a s t i o n Square, i n V i c t o r i a , B.C., w i l l be given i n Chapter F i v e . 50 Before c l o s e r examination of the r e s u l t s of the questionnaires i s made two subjects must be d i s c u s s e d . They are the reasons f o r the types of questions asked and the c i t i e s s e l e c t e d f o r survey, and the place of the government-sponsored p r o j e c t s i n r e l a t i o n t o p r i v a t e e f f o r t s . As has been sta t e d p r e v i o u s l y i t was hoped that the meaning attached t o the word • r e h a b i l i t a t i o n ' by the v a r i o u s planning a u t h o r i t i e s could be determined. The f i r s t question was asked i n order to d i s c e r n whether planning bodies recognized r e h a b i l i t a t i o n as d i s t i n c t from redevelopment or c o n s e r v a t i o n , as w e l l as the necessary i n t e g r a t i o n of a l l three aspects. The place of m u n i c i p a l improvements - were they considered s e p a r a t e l y or as a part of the r e h a b i l i t a t i o n program - was a l s o questioned. The r e h a b i l i t a t i o n programs of each c i t y were examined i n order that the a r e a l and f u n c t i o n a l extent of such p r o j e c t s might be determined as w e l l as t h e i r c o s t . The sourcS of i n s p i r a t i o n f o r these p r o j e c t s was f e l t to be important f o r i t o f t e n determines the immediate and continued success of such pla n s . F i n a l l y , the few c i t i e s which already had programs i n execution were asked what problems they had encountered. Future r e h a b i l i t a t i o n e f f o r t s can be aided by a previous knowledge of these problems. With the exception of O a k v i l l e , O n t a r i o , only c i t i e s w i t h government-sponsored p r o j e c t s were examined. There are three reasons f o r t h i s choice. F i r s t , i t was f e l t that agencies i n v o l v e d i n government-sponsored renewal would have the most information c o l l e c t e d on r e h a b i l i t a t i o n p r o j e c t s and thus would be able to answer the questionnaire w i t h the l e a s t d i f f i c u l t y . Second, p r o j e c t s undertaken 51 w i t h i n the context of a government-sponsored urban renewal scheme must, by the d e f i n i t i o n of these programs, be i n t e g r a t e d w i t h a general plan f o r the community. F i n a l l y , i t i s the purpose of t h i s t h e s i s to make recommendations about r e h a b i l i t a t i o n programs at the l o c a l government l e v e l and the f e d e r a l government l e v e l . R e h a b i l i t a t i o n Sponsored by P r i v a t e E n t e r p r i s e Commercial r e h a b i l i t a t i o n i s by no means the e x c l u s i v e a c t i v i t y of c i t i e s which have government-sponsored p r o j e c t s . L e g i s l a t i o n i n the United States and Canada has only r e c e n t l y permitted expenditure f o r t h i s type of renewal but there are, n e v e r t h e l e s s , many c i t i e s which have t a c k l e d r e h a b i l i t a t i o n at t h e i r own expense and through p a r t i c i p a -t i o n of l o c a l businessmen. Many examples may be given. Cedar Rapids, Iowa, has an extensive program f o r a l l e y b e a u t i f i c a t i o n . Champaign, I l l i n o i s , places flower baskets on downtown s t r e e t l i g h t p o l e s . Thomasville, Georgia, undertook a program c a l l e d 'Operation F a c e l i f t ' i n which p h y s i c a l improvements were made to over one hundred businesses. The Newton, New J e r s e y Improvement Advisor y Committee has commissioned a study t o show how the facades of stores and other b u i l d i n g s can be harmonized and b e a u t i f i e d . In Freeport, I l l i n o i s , a f r e e - s t a n d i n g canopy was b u i l t around one of the primary downtown b l o c k s , thus a l l o w i n g stores to do what they wished on t h e i r own facades without i n t e r f e r e n c e from the canopy.*- Vancouver, B r i t i s h Columbia, has been the s i t e of s e v e r a l p r i v a t e l y - s p o n s o r e d r e h a b i l i t a t i o n p r o j e c t s such as the improvement of the Richmond Block on Robson Street by a program s i m i l a r to that used i n Norwich, England. 52 A n a l y s i s of Questionnaires The questionnaires and l e t t e r s r e c e i v e d i n response to i n q u i r i e s r e g arding commercial r e h a b i l i t a t i o n p r o j e c t s represent twenty-two c i t i e s s i t u a t e d i n t h i r t e e n s t a t e s and four p r o v i n c e s . As examination of Table 2 w i l l show a l l the American c i t i e s , w i t h the exception of Fresno, C a l i f o r n i a , are i n the eastern h a l f of the United S t a t e s . Populations given i n Table 2 represent j u s t the c i t y proper and not the Standard M e t r o p o l i t a n Area. There i s a great range i n p o p u l a t i o n shown, w i t h the smallest c i t y having a p o p u l a t i o n of j u s t over 10,000 persons and the l a r g e s t of over two m i l l i o n . Eight c i t i e s are between 10,000 and 100,000 persons, ten are between 100,000 and 500,000 persons, and four are over 500,000 persons. The c o m p l e x i t i e s of t h e i r urban renewal programs tend to increase i n p r o p o r t i o n to the s i z e of the c i t i e s and thus, i n the case of P h i l a d e l p h i a , i t becomes almost impossible to i s o l a t e such f a c t s as the cost of r e h a b i l i t a t i o n or the number of b u i l d i n g u n i t s being r e h a b i l i t a t e d . D i f f i c u l t y was encountered i n determining the extent of government-sponsored r e h a b i l i t a t i o n p r o j e c t s because l e g i s l a -t i o n a l l o w i n g f i n a n c i a l a i d i s so r e c e n t . Thus, only twelve c i t i e s were at the implementation stage of t h e i r p r o j e c t s , w h i l e others were s t i l l i n the planning stage. 53 TABLE 2 POPULATION SIZE AND STAGE OF REHABILITATION PROJECT FOR SELECTED CITIES IN THE UNITED STATES AND CANADA C i t y State/Province Population*- P r o j e c t Stage United States Boston Massachusetts 697,197 i n execution E r i e Pennsylvania 138,440 i n execution F l i n t Michigan 196,940 i n p l a n n i n g Fresno C a l i f o r n i a 133,929 i n execution Johnson C i t y Tennessee 31,187 i n planning J o p l i n M i s s o u r i 38,958 i n planning L i t t l e Rock Arkansas 128,929 i n execution L o u i s v i l l e Kentucky 389,044 i n execution Manchester New Hampshire - 88,282 i n p l a n n i n g 2 New Haven Connecticut 152,048 i n execution Oklahoma C i t y Oklahoma 324,253 i n planning P h i l a d e l p h i a Pennsylvania 2,002,512 i n execution Sylacauga Alabama -12,587 i n p l a n n i n g T u l sa Oklahoma 261,685 i n execution U t i c a New York 38,629 i n execution WilkesBarre Pennsylvania 63,551 i n p l a n n i n g Canada Calgary A l b e r t a 249,641 proposal Edmonton A l b e r t a 281,027 p r o p o s a l 3 Montreal Quebec 1,191,062 general a i d given^ O a k v i l l e Ontario 10,366 i n execution5 Toronto Ontario 672,401 i n execution^ •'•Population Source: United States 1960 Census, Canada 1961 Census, r e f e r s to p o p u l a t i o n of c i t y proper and not Census Standard M e t r o p o l i t a n Area. 2Manchester study i s s t i l l i n the survey stage and thus informa-t i o n i s l i m i t e d . 3 C a l g a r y and Edmonton propose r e h a b i l i t a t i o n i n CBD areas but have yet to begin s t u d i e s . ^Montreal a s s i s t s i n the establishment of commercial e n t e r p r i s e s i n r e h a b i l i t a t e d b u i l d i n g s w i t h i n the l i m i t s of i t s charter but i t has no government-sponsored p r o j e c t . % o t a government-sponsored p r o j e c t but included f o r comparison purposes. ^Further d e t a i l s on the V i c t o r i a p r o j e c t w i l l be given i n Chapter F i v e . 54 Loss i n Sales. Volume A study which was undertaken by Homer Hoyt on the subject of U.S. M e t r o p o l i t a n Area R e t a i l Shopping Patterns provides the data shown i n Table 3. 2 An a n a l y s i s of c e n t r a l business d i s t r i c t s a l e s of general merchandise i n eleven of the twenty-two c i t i e s under c o n s i d e r a t i o n i n t h i s chapter q u i c k l y shows the cause f o r concern over the economic strength of the downtown area. F i v e c i t i e s a c t u a l l y l o s t s a l e s value over the f i v e year p e r i o d and f o r other c i t i e s increases i n s a l e s value were minimal. The f a c t s are p a r t i c u l a r l y s t r i k i n g when placed i n comparison w i t h the percent increase i n s a l e s outside the c e n t r a l business d i s t r i c t which ranged from 19 percent t o 128 percent. Other f i n d i n g s of t h i s study showed that s a l e s outside the c e n t r a l business d i s t r i c t s of American c i t i e s rose 89 percent on the average compared w i t h the increase of 54 percent from 1954 t o 1958. In 1963 the s a l e s of s t o r e s i n the CBD were only h a l f the s a l e s of general merchandise beyond the borders of the c e n t r a l a r e a s . 3 55 TABLE 3 C B D J S A L E S OF GENERAL MERCHANDISE FOR S E L E C T E D AMERICAN C I T I E S 1958-1963 C i t y 1960 SMA P o p u l a t i o n 1 (000»s) 1963 (000's) 1958 Percent Increase Outside CBD No. of „ Regional Centers Boston 2,589,303 $205,430 $201,702 62.12 13 E r i e 250,682 25,310 24,395 19.13 1 F l i n t 374,315 31,884 23,291 128.00 3 Fresno 366,945 23,998 21,298 76.54 1 L i t t l e Rock 249,980 40,298 36,555 68.75 1 L o u i s v i l l e 725,139 51,535 53,538 110.19 4 New Haven 311,681 19?§022 21,808 58.70 2 Oklahoma C i t y 511,833 21,863 29,896 121.37 1 P h i l a d e l p h i a 4,342,897 220,808 259,136 70.53 14 Tulsa 418,974 19,391 22,693 60.59 3 U t i c a 330,771 17,626 16,698 62.38 1 S t a n d a r d Census M e t r o p o l i t a n Area P o p u l a t i o n . ^Planned r e g i o n a l centers w i t h s a l e s i n excess of $10,000,000 i n 1963. Source: Homer Hoyt, "U.S. M e t r o p o l i t a n Area R e t a i l Shopping P a t t e r n s , " Urban Land, v o l . 25, no. 3, March 1966. 56 The Meaning of Commercial R e h a b i l i t a t i o n Eighteen of the twenty-two c i t i e s s tudied r e p l i e d to the question regarding the meaning of 'commercial r e h a b i l i t a t i o n . ' I t i s important i n government-sponsored p r o j e c t s that planning bodies have not only a s i m i l a r view of the meaning of a renewal technique but a l s o that t h e i r view be reasonably comprehensive. In order to determine the scope of r e h a b i l i t a t i o n , s e v e r a l choices were given as shown i n Appendix A and Table 4. The p r o v i s i o n of an a r c h i t e c t u r a l consultant was not included as one of these choices but i t was included by s e v e r a l people as an important part of a r e h a b i l i t a t i o n program. The p r o v i s i o n of a management consultant was given as one of the choices i n order to f i n d out whether help i s given to businesses whose problems i n v o l v e more than j u s t the need f o r p h y s i c a l improvement. Although only four c i t i e s i n the United States suggested that such a i d was given i t may be present i n other c i t i e s through the auspices of the Small Business A d m i n i s t r a t i o n . I t i s i n t e r e s t i n g to note that t h i r t e e n of the eighteen c i t i e s i n c luded most of the suggested p r o v i s i o n s while the others included l e s s than h a l f of the p r o v i s i o n s . There would appear t o be a general consensus on p a i n t i n g and c l e a n i n g of b u i l d i n g s and on a r e d e c o r a t i o n of i n t e r i o r s . A number of c i t i e s mentioned that p a i n t i n g and c l e a n i n g were r e a l l y only conservation or maintenance items by themselves. The improvement of t r a f f i c access, parking improvements, and s t r e e t l i g h t i n g are considered m u n i c i p a l improvements i n many c i t i e s and are provided f o r separately i n f e d e r a l renewal grants. 57 TABLE U METHODS USED FOR COMMERCIAL REHABILITATION WITHIN THE CENTRAL BUSINESS DISTRICT C i t y Painting & Cleaning Improve Traffic Access Improve Parking Street Furniture Trees Redecorate Interiors Management Consultant Sign Control Street Lighting Archi-tectural Consultant Boston X X X E r i e X X X X X X X F l i n t X X X X X X X X Fresno X X X X X X X Johnson C i t y X X X X X X X X J o p l i n X X X X X X X L i t t l e Rock : x X X X L o u i s v i l l e X X X X X X New Haven X X X X X X X X Oklahoma C i t y X X X X P h i l a d e l p h i a X X X x:; X X X Sylacauga X X X X X X X X Tulsa X X U t i c a X X X X X X X X WilkesBarre X X X X X X X X Montreal X X X X X X X O a k v i l l e X X X X X X X Toronto . X X X X X 58 Mr. James Y i e l d i n g , the Executive D i r e c t o r of the Oklahoma C i t y Urban Renewal A u t h o r i t y defined r e h a b i l i t a t i o n as "the r e s t o r a t i o n of e x i s t i n g s t r u c t u r e s to e s t a b l i s h e d standards of s t r u c t u r a l adequacy which i s but a part of t o t a l renewal; other p a r t s being t o t a l clearance and new redevelopment, and improvement of e x i s t i n g p u b l i c works, i . e . sewers, water l i n e s , s t r e e t s , parks, s t r e e t l i g h t s , s t r e e t t r e e s and f u r n i t u r e , e t c . " This d e f i n i t i o n p o i n t s out an important aspect of r e h a b i l i t a t i o n , most evident i n the United S t a t e s . There i s considerable emphasis on improvement to meet code standards of s t r u c t u r a l adequacy r a t h e r than j u s t improvement to a e s t h e t i c standards. An example of such improvements considered necessary f o r a property i n E r i e , Pennsylvania, i s given i n Appendix C and the even more r i g o r o u s standards proposed f o r Sylacauga, Alabama, are shown i n Appendix D. As Mr. C l i n t o n Mullen of the P h i l a d e l p h i a Redevelopment A u t h o r i t y explained: " R e h a b i l i t a t i o n means r e p a i r s , a l t e r a t i o n s , p a r t i a l r e b u i l d i n g , r e f i n i s h i n g e t c . t o produce a t i g h t , c l e a n , safe, well-appearing s t r u c t u r e . " Emphasis on a unique type of decoration seems to be found only i n areas which are preserved f o r reasons of h i s t o r i c a l importance. 60 The Extent of R e h a b i l i t a t i o n P r o j e c t s Tables 5, 6 and 7 attempt a summary of the extent of r e h a b i l i t a t i o n p r o j e c t s p r e s e n t l y under way or completed i n Canadian and American c i t i e s . Table 5 shows the a r e a l extent of the p r o j e c t or whether the p r o j e c t i s undertaken on a b l o c k by b l o c k b a s i s , or on the b a s i s of improvements to s i n g l e businesses. I t a l s o shows whether r e h a b i l i t a t i o n i s part of a l a r g e r program of renewal. Most c i t i e s determine the extent of r e h a b i l i t a t i o n on an a r e a l b a s i s , the area v a r y i n g from U t i c a , New York's 11.7 acres t o P h i l a d e l p h i a ' s many pro-j e c t s and Boston's t o t a l of 349 a c r e s . Only E r i e , Pennsylvania and T u l s a , Oklahoma stat e d that they undertook p r o j e c t s on the b a s i s of improvements t o s i n g l e businesses. A l l but two of the c i t i e s have r e h a b i l i t a t i o n p r o j e c t s which are part of l a r g e r renewal programs. In the case of L o u i s v i l l e , Kentucky, commercial r e h a b i l i t a t i o n i n the c e n t r a l business d i s t r i c t i s a p r i v a t e v o l u n t a r y program by the L o u i s v i l l e C e n t r a l Area Downtown Property Owners' A s s o c i a t i o n . East and west of the c e n t r a l business d i s t r i c t i s involved i n a C i t y Urban Renewal P r o j e c t i n v o l v i n g clearance and redevelopment w i t h spot con-s e r v a t i o n and s c a t t e r e d r e h a b i l i t a t i o n . Frequently the l a r g e r renewal program, of which r e h a b i l i t a t i o n was a p a r t , involved redevelopment r a t h e r than r e h a b i l i t a t i o n of other land uses or conservation. I t i s s u r p r i s i n g that conservation was not mentioned as an i n t e g r a l " part of a l l r e h a b i l i t a t i o n programs, however, many planning o f f i c e s may con-s i d e r conservation to be a matter of p a i n t i n g , c l e a n i n g , and general maintenance. 61 TABLE 5 THE EXTENT OF CBD COMMERCIAL REHABILITATION i ( A r e a l Extent of P r o j e c t Part of ' Larger Program Elements i n Larger Program C i t y i i i > y Area Single Busines; Basis 1 Redevelc ment t-H y Area Block Basis Single Busines; Basis CO fll 1 Redevelc ment Other Rehabi tat ion u CO o (3 •<* PQ Block Basis Single Busines; Basis >* u 55 1 Redevelc ment Other Rehabi tat ion O 4-> o Boston^" 349 Ac. X X X E r i e X X X F l i n t 200 Ac. X X X X Fresno 85 Ac. X X Johnson C i t y 79 Ac. X X X J o p l i n 50 Ac. X L i t t l e Rock 427 Ac. X X L o u i s v i l l e 3 30 Blocks X Manchester 138 Ac. X X X New Haven 120 Ac. X X Oklahoma C i t y X X P h i l a d e l p h i a 4 X X X X Sylacauga 51 Ac. X Tul s a X X X X X U t i c a 11.7 Ac. X X WilkesBarre ' X X X O a k v i l l e Toronto 170 Ac. X X X X •••Boston: Waterfront - 104 A c ; CBD - 245 Ac. 2 0 f t h i s t o t a l , the M a l l c o n s i s t s of 36.5 Ac. 3See accompanying t e x t . 4There are seven r e h a b i l i t a t i o n p r o j e c t s i n the CBD, ranging i n s i z e from a few to 129 Ac. 62 Table 6 showing the types of commercial land use which were invo l v e d i n the c e n t r a l business d i s t r i c t again demonstrates the general comprehensiveness of approach of these p r o j e c t s . They are by no means simply a e s t h e t i c improvements f o r an area of s p e c i a l t y shops. They take i n t o account a l l types of shopping i n c l u d i n g the department stores which have s u f f e r e d considerable l o s s e s i n past y e a r s . The only type of commercial land use which was not included i n almost a l l c i t i e s was the the a t r e and t h i s may be caused by 'theatre-rows' not being included i n the p r o j e c t area. Several c i t i e s included a t r a n s p o r t a t i o n center such as a r a i l r o a d s t a t i o n or bus t e r m i n a l . Although they are more s p e c i f i c a l l y of the t r a n s p o r t a t i o n f u n c t i o n than the commercial f u n c t i o n they are c e r t a i n l y s t r u c t u r e s which can be p r o f i t a b l y included i n a CBD renewal scheme. Among the questions concerning the extent of r e h a b i l i t a t i o n was one i n which the v a r i o u s f a c e t s of t h i s type of renewal were l i s t e d i n the same way as i n the f i r s t s e c t i o n of the questionnaire which d e a l t w i t h the meaning of r e h a b i l i t a t i o n . In a l l but two cases t h i s question was answered i n e x a c t l y the same manner as the f i r s t question. For t h i s reason, these r e s u l t s have not been documented i n a separate t a b l e . S i m i l a r i t y i n the two answers may have been due to a misunderstanding of the d i f f e r e n c e between the questions or may r e f l e c t the f a c t that the planning a u t h o r i t i e s ' d e f i n i t i o n of r e h a b i l i t a t i o n i s based upon the experience of t h e i r present program. 63 TABLE 6 COMMERCIAL LAND USE FUNCTIONS INVOLVED IN CBD REHABILITATION PROJECTS CO u u >> ti CO ti 4 J r-l CO CO CD 60 60 CO CO r-l CO CO CO rJ CD a. •rl i-l cd 4J CD CD O U CO u a o x o C W " H CD 0 ) X I O . X ! 0) 3 CD CD 4-> <*4 3 J C CD 4-1 co co C O Q C O O C O O P Q E-J erf O X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X X C i t y Boston E r i e F l i n t Fresno Johnson C i t y J o p l i n L i t t l e Rock L o u i s v i l l e New Haven Oklahoma C i t y P h i l a d e l p h i a Sylacauga Tulsa U t i c a WilkesBarre O a k v i l l e Toronto ^Other uses mentioned were w h o l e s a l i n g , warehousing, a r a i l r o a d s t a t i o n , and a bus t e r m i n a l . 64 The Cost of R e h a b i l i t a t i o n Included i n Table 7 which deals w i t h the cost of r e h a b i l i t a t i o n i s the average age of b u i l d i n g s which are being improved and the number of b u i l d i n g u n i t s which are i n v o l v e d . The age of b u i l d i n g s v a r i e s from twenty-six years to over two hundred and f i f t y years. R e h a b i l i t a t i o n plans are thus t a k i n g i n t o account b u i l d i n g s which have been p o o r l y con-s t r u c t e d i n recent times as w e l l as s t r u c t u r e s which have stood the t e s t of time but need improvements f o r a c c e p t a b i l i t y by modern t a s t e . The average age of b u i l d i n g s i n these programs i s about seventy years, t h e i r c o n s t r u c t i o n p e r i o d being j u s t before or at the t u r n of the century. The number of b u i l d i n g u n i t s i n v o l v e d i s i n most cases a r e f l e c t i o n of the s i z e of the c i t y but i t i s i n t e r e s t i n g to note the cautious approach of Oklahoma C i t y w i t h only nineteen b u i l d i n g s i n the f i r s t phase of i t s program compared w i t h P h i l a d e l p h i a which sta t e d that w e l l over a thousand b u i l d i n g u n i t s are i n v o l v e d . The question concerning the cost of r e h a b i l i t a t i o n s u f f e r e d from the f a c t that most government-sponsored pro-j e c t s are e i t h e r i n the implementation stage or s t i l l i n the planning stage. Of the twelve c i t i e s that gave d e t a i l s about the c o s t - s h a r i n g b a s i s f o r these p r o j e c t s , seven sta t e d that i t was to be 100 percent at the expense of p r i v a t e e n t e r p r i s e . There are two reasons f o r t h i s . F i r s t , i n c i t i e s i n both the United States and Canada, r e h a b i l i t a t i o n t o i n d i v i d u a l b u i l d i n g s i s t o t a l l y at the owner's expense. The owner can apply to the F e d e r a l government f o r an insured loan f o r r e h a b i l i t a t i o n purposes i f the b u i l d i n g i s w i t h i n an urban renewal scheme but the owner i s s t i l l 65 TABLE 7 THE COST OF REHABILITATION C i t y Average Age of Bldgs. No. of U n i t s T o t a l Cost J (1) (2) (3) Boston E r i e F l i n t Fresno Johnson C i t y J o p l i n L i t t l e Rock L o u i s v i l l e New Haven Oklahoma C i t y P h i l a d e l p h i a Sylacauga Tulsa U t i c a WilkeslBarre O a k v i l l e Toronto 80-130 y r s . ' 60-65 y r s . 75 y r s . 30-50 y r s . 45 y r s . 35-40 y r s . 40 y r s . 65 y r s . 50 y r s . 26-266 y r s . 50+ y r s . 25 y r s . 40 y r s . 80 y r s . 60-120 y r s . 70 y r s . 222 74 59 145 100 600 $10,000,000 100% Information not a v a i l a b l e at present Unknown $1,500,000 Unknown Unknown Unknown"* Unknown 40% 100% 100% 100% 90% 33% 10% 66% 60% Information not a v a i l a b l e at present 3 19 1000+ Unknown Unknown 100% 33% 66% Information not a v a i l a b l e at present 59 58 34 381 $413,000 Unknown $86,000 Unknown Unknown 100% 100% 100% ^T o t a l cost i s broken down i n t o (1) % P r i v a t e e n t e r p r i s e ; C2)_% M u n i c i p a l ; (3) % F e d e r a l . _ . 2 j j a t e r f r o n t b u i l d i n g s - 130 y r s . CBD b u i l d i n g s - 80 y r s . 222 waterfront b u i l d i n g s are i n v o l v e d , number i n CBD p r e s e n t l y unknown. 3Pha se 1 of p r o j e c t . ^ T o t a l p r o j e c t cost w i l l be $32,000,000; $20,000,000 through l o c a l c o n t r i b u t i o n . ^ P h i l a d e l p h i a i s p r e s e n t l y engaged i n over 70 urban renewal pro-j e c t s , spends over $30 m i l l i o n f e d e r a l funds per annum, over $10 m i l l i o n l o c a l funds. ^ T h i r t y - f i v e percent of work already completed has cost i n excess of $12 m i l l i o n . 66 100 percent r e s p o n s i b l e f o r the cost of improvements. Second, p u b l i c improvements are considered separately and not as an i n t e g r a l part of r e h a b i l i t a t i o n p r o j e c t s i n the budgeting of many c i t i e s . They are, however, o f t e n undertaken by mu n i c i p a l governments w i t h Federal govern-ment a i d and add" to the improvements made i n r e h a b i l i t a t i o n schemes. In almost a l l cases b u i l d i n g s to be r e h a b i l i t a t e d are to be r e t a i n e d by the present owners. Boston, E r i e , F l i n t , P h i l a d e l p h i a , Sylacauga, and U t i c a have made p r o v i s i o n s that w i l l a l l o w b u i l d i n g s to be acquired by p u b l i c money then e i t h e r leased or s o l d back to p r i v a t e businesses i f the present owner refuses to cooperate w i t h the r e h a b i l i t a t i o n scheme. The Source of I n s p i r a t i o n f o r R e h a b i l i t a t i o n P r o j e c t s As was stated p r e v i o u s l y the source of i n s p i r a t i o n f o r r e h a b i l i t a t i o n was studied because, i n p r o j e c t s which i n v o l v e government sponsorship and p r i v a t e e n t e r p r i s e , i t i s important that there be a ba s i c understanding as t o the goals of the p r o j e c t . In most of the c i t i e s studied (as shown i n Table 8) p r i v a t e business i n t e r e s t and l o c a l government were together r e s p o n s i b l e f o r the p r o j e c t i d e a . In only a few cases d i d i n s p i r a t i o n come from the redevelopment a u t h o r i t y or the l o c a l planning board as part of t h e i r t o t a l renewal program. I t i s s i g n i f i c a n t that p r i v a t e e n t e r p r i s e p l a y s such an important part i n the o r i g i n a l i n s p i r a t i o n f o r t h i s type of renewal scheme. I t shows not only t h e i r awareness of the problem but a l s o t h e i r w i l l i n g n e s s to do something about i t . I t may a l s o i n d i c a t e the r o l e of p r i v a t e e n t e r p r i s e e f f o r t s i n r e l a t i o n to those of p u b l i c bodies. 67 TABLE 8 SOURCE OF INSPIRATION FOR REHABILITATION PROGRAMS C i t y P r i v a t e Business Chamber of Commerce L o c a l Gov't Redev't A u t h o r i t y L o c a l P l a n . Bd. Other Boston X E r i e X X F l i n t X X Fresno X Johnson C i t y X X J o p l i n X L i t t l e Rock x 1 L o u i s v i l l e X New Haven X X X Oklahoma C i t y X X P h i l a d e l p h i a X X 2 Sylacauga X X Tulsa X X X U t i c a X WilkesBarre X 3 O a k v i l l e X Toronto X •"•A muni c i p a l garage was constructed on land which t h i s A u t h o r i t y had s o l d to the Parking A u t h o r i t y , t h e r e f o r e the surrounding CBD was included f o r r e h a b i l i t a t i o n . ^ P h i l a d e l p h i a e l e c t e d a reform government i n the e a r l y 1960's and thus was able to b r i n g i n the business establishment very e a r l y i n the development of v a r i o u s p r o j e c t s . 3Arkansas Chapter of the American I n s t i t u t e of A r c h i t e c t s and the N a t i o n a l C i t i z e n s Planning Conference of 1957. 68 Problems Encountered i n R e h a b i l i t a t i o n Programs The l a s t s e c t i o n of the questionnaire d e a l t w i t h the problems which have been met by those c i t i e s whose p r o j e c t s are p r e s e n t l y i n execution. Although only e i g h t c i t i e s were able to respond to t h i s question t h e i r answers are worth r e p e t i t i o n i n f f u l l and, i n some cases, echo the hypothesis of t h i s t h e s i s . The Boston Redevelopment A u t h o r i t y encountered considerable d i f f i c u l t y i n demonstrating to property owners the economic f e a s i b i l i t y of r e h a b i l i t a t i n g s t r u c t u r e s . In E r i e , Pennsylvania, the problems came i n f i n a n c i n g the p r o j e c t . The R e h a b i l i t a t i o n O f f i c e r of the Fresno Redevelopment Agency f e l t that a l a c k of p u b l i c understanding and thereby l a c k of cooperation was the greatest problem. There seemed to be a f e a r or at l e a s t a f e e l i n g that the Agency, and perhaps the Federal government, was t r y i n g t o d i c t a t e o p e r a t i n g p o l i c y and methods to the businessman and was t r y i n g to e l i m i n a t e the small businessman. Some f e l t that the Agency was t r y i n g to t u r n over the area to l a r g e business i n t e r e s t s . A follow-up study of the Fresno m a l l p r o j e c t showed that i n a survey of 332 businessmen outside the 1 superblock* area, 163 f e l t the p r o j e c t had brought them b e t t e r business, 141 had equal business, and 28 f e l t t h e i r business had d e c l i n e d . 4 I n L i t t l e Rock, Arkansas, c o o r d i n a t i o n of design and m a t e r i a l s between adjacent b u i l d i n g s proved d i f f i c u l t . In P h i l a d e l p h i a the q u a l i t y of work and encouraging v o l u n t a r y work were problems. A l s o mentioned was the problem of property which was marginal but not bad enough to condemn and where the owners refused to undertake 69 the necessary r e h a b i l i t a t i o n . The Redevelopment A u t h o r i t y of P h i l a d e l p h i a a l s o faced the problem of r e l o c a t i o n , p a r t i c u l a r l y of bars, and other uses, which c e r t a i n neighbourhoods considered o b j e c t i o n a b l e . U t i c a , New York, had d i f f i c u l t y e x p l a i n i n g r e h a b i l i t a t i o n goals to r e t i r e d or e l d e r l y persons and Toronto found problems w i t h the land ownership p a t t e r n . For most of the c i t i e s studied i t i s too e a r l y to determine whether there w i l l be any change i n use or change of ownership w i t h i n the r e h a b i l i t a t i o n a rea. However, f o r the few c i t i e s which answered t h i s question there appeared t o be about a 10 percent change i n use and no change of ownership. L i t t l e Rock, Arkansas, was the exception i n t h i s case where a 40 percent change i n use has been recorded and a 10 percent change of ownership. U n f o r t u n a t e l y the questionnaire d i d not request the number of businesses which have r e l o c a t e d because they d i d not wish or could not a f f o r d to r e h a b i l i t a t e . The T o t a l Process Response to the questionnaire has been almost e x c l u s i v e l y from the United States and has shown that r e h a b i l i t a t i o n i s only part of the t o t a l renewal process i n government-sponsored p r o j e c t s . For t h i s reason, i t i s v a l u a b l e to consider the t o t a l process i n order to under-stand the place of r e h a b i l i t a t i o n . Using the c i t y of Fresno, C a l i f o r n i a , and the Redevelopment Agency of the C i t y of Fresno as an example, the procedure i s as follows.-* The C i t y of Fresno, r e c o g n i z i n g an area's need f o r renewal, e s t a b l i s h e s a p r o j e c t by a c t i o n of the C i t y C o u n c i l . 70 The p r o j e c t i s then turned over to the Redevelopment Agency of the C i t y of Fresno f o r study and implementation. This agency i s a p o l i t i c a l s u b d i v i s i o n of the State created by the C i t y C o u n c i l , and o p e r a t i n g independently under F e d e r a l , S t a t e , and l o c a l laws. The Redevelopment Agency works w i t h c i t y agencies and w i t h i n the framework of the c i t y ' s p l anning g o a l s . I t s c r e a t i o n permits Federal involvement i n renewal p r o j e c t s . The p r o j e c t area being designated, a study i s undertaken, which may be p a r t i a l l y financed by Federal funds, to determine whether the area q u a l i f i e s as 'a b l i g h t e d area.' I f an area i s designated f o r renewal a p l a n i s prepared and submitted to the F e d e r a l government and the p u b l i c f o r approval, the C i t y C o u n c i l making the f i n a l d e c i s i o n . A f t e r a d e t a i l e d f i n a n c i a l a n a l y s i s i s made and a f e d e r a l loan and grant contract i s approved, the Agency i s f r e e to proceed w i t h the p l a n . In the case of the c e n t r a l business d i s t r i c t of Fresno, two-thirds of the t o t a l p r o j e c t cost was p a i d by l o c a l c o n t r i b u t i o n . The greater part of the funds came from p a r k i n g a u t h o r i t y bonds and s p e c i a l assessments on the downtown d i s t r i c t , v e r y l i t t l e from the general taxpayer's pocket. There i s p a r t i c u l a r emphasis put on r e h a b i l i t a t i o n w i t h i n the c e n t r a l business d i s t r i c t and owners of e x i s t i n g s t r u c t u r e s are encouraged to p a r t i c i p a t e i n the p r o j e c t by b r i n g i n g t h e i r p r o p e r t i e s up to standard. The owners have three c h o i c e s : to r e l o c a t e , a process f o r which they may be given Federal a s s i s t a n c e ; to r e h a b i l i t a t e , f o r which the Federal Housing Act of 1964 makes a v a i l a b l e low i n t e r e s t loans to the value of $50,000; or t o s e l l t h e i r property t o the Redevelopment Agency. Property owners must agree to one of these p r o v i s o s i n order to Downtown renewal will be accomplished through a combination of reconstruction and rehabilitation techniques. In this Concept Model of the northern half of the 24-block project, new buildings are shown in white. Existing buildings, which will be rehabilitated, are shown in gray. T H I S IS A C O N C E P T M O D E L , S U B J E C T T O C H A N G E F I G . 3 D O W N T O W N R E N E W A L - ER IE P E N N S Y L V A N I A 72 prevent a s i n g l e piece of property from causing d e t e r i o r a t i o n to an e n t i r e area. A s i m i l a r procedure i s followed i n most other United States' government-sponsored p r o j e c t s . The procedure which Canadian c i t i e s must f o l l o w w i l l be o u t l i n e d i n Chapter F i v e i n connection w i t h the C i t y of V i c t o r i a p r o j e c t f o r B a s t i o n Square. Summary to Chapter Four Review of renewal p r o j e c t s i n v o l v i n g r e h a b i l i t a t i o n i n c e n t r a l business d i s t r i c t s of seventeen American and two Canadian c i t i e s has shown that they are u s u a l l y very comprehensive i n terms of t h e i r p h y s i c a l p r o v i s i o n s and th a t they act as one part of a t o t a l renewal program. They are l i m i t e d to the extent that p r o j e c t s must be w i t h i n a s p e c i f i c area. I t would appear that they are supported by both p r i v a t e business and l o c a l government. In almost a l l cases i t i s too e a r l y to judge whether they have been or w i l l be economically f e a s i b l e . For completed p r o j e c t s , t h e i r present rewards are i n the form of improved appearance and v i t a l i t y of the downtown areas. The greatest problem i n the use of r e h a b i l i t a t i o n would seem to be f i n a n c i a l d i f f i c u l t i e s encountered by many of the businesses designated as part of the renewal areas. 73 Footnotes to Chapter Four Information gathered from n e w s l e t t e r s of the Downtown Idea Exchange (New York: The Downtown Idea Exchange, January t o June, 1966) "Homer Hoyt, "U.S. M e t r o p o l i t a n Area R e t a i l Shopping P a t t e r n s , " Urban Land, XXV, No. 3 (March, 1966), pp. 3-5. I b i d . , p. 1 ^Downtown A s s o c i a t i o n of Fresno, Inc., The Fresno Plan (Fresno, C a l i f o r n i a : The A s s o c i a t i o n , A p r i l , 1966), p. 5. ^Redevelopment Agency of the C i t y of Fresno, c r e a t i n g new environments . . . a primer (Fresno, C a l i f o r n i a : The Redevelopment Agency, no da t e ) . 74 CHAPTER FIVE EXAMINATION OF A FRAMEWORK FOR REHABILITATION: A CASE STUDY OF VICTORIA, BRITISH COLUMBIA V i c t o r i a has three f a c e s . The f i r s t i s a face of mellowed charm and a d i g n i t y acquired-over one hundred years - a quiet m a t u r i t y to be seen i n p u b l i c b u i l d i n g s , parks and many r e s i d e n t i a l areas. The second face i s that of y o u t h f u l a c t i v i t y symbolized by the confident new b u i l d i n g s of the l a s t decade. From these two faces comes the impression of V i c t o r i a as an h i s t o r i c pro-v i n c i a l c a p i t a l , a c i t y of gardens and health y p r o s p e r i t y . But there i s a t h i r d face which i s not always recognized. I t i s the face of t i r e d age, weary w i t h the d e t e r i o r a t i o n and neglect which mar the appearance and e f f i c i e n c y of b u i l d i n g s and t h e i r surroundings. This t h i r d face i s c a l l e d b l i g h t and i t i s slowly corroding the f a i r faces of the c i t y and c r e a t i n g both a th r e a t and a challenge. C a p i t a l Region Planning Board of B.C. Urban Renewal Study f o r V i c t o r i a . 1961 The past h e r i t a g e of the C i t y i s an asset to i t s f u t u r e and i s not i n any way an impediment to growth and pro-gress. A c i t y w i t h a h i s t o r y , and w i t h the p h y s i c a l evidence of i t s h i s t o r y , has a s t a b i l i t y of foundation which encourages care and q u a l i t y i n i t s new development. I t i s submitted that a measure of a c i t y ' s m a t u r i t y i s the extent to which i t w i l l on the one hand encourage i n the proper s e t t i n g well-planned modern o f f i c e b u i l d i n g s or h i g h - r i s e apartments and on the other hand preserve a b u i l d i n g constructed i n the l a s t century. C a p i t a l Region Planning Board of B.C. O v e r a l l P l a n f o r V i c t o r i a , 1965 75 Goals and Reasons f o r R e v i t a l i z a t i o n Through a r a t h e r s p e c i a l combination of c i v i c and l o c a l business concern coupled w i t h an important t o u r i s t i n d u s t r y and a h e r i t a g e of h i s t o r i c b u i l d i n g s , the c e n t r a l business d i s t r i c t of V i c t o r i a , B r i t i s h Columbia, l o c a t i o n shown on Map 1, has been and continues to be the subject of considerable r e h a b i l i t a t i o n e f f o r t . The v i t a l i t y of the downtown area has been a major source of concern i n V i c t o r i a i n recent years and i t i s v a l u a b l e to examine i n depth the proposals and p r o j e c t s of t h i s c i t y . For the purposes of t h i s t h e s i s the study area has been e s t a b l i s h e d as the major commercial land use area w i t h i n V i c t o r i a Census Tract F i v e - the Downtown Tract area. Approximate l o c a t i o n of the downtown commercial area and core commercial area are shown i n Map 2. I t i s i n t e r e s t i n g to note that the highest land value i n the downtown core i s today found l e s s than four-hundred yards from the s i t e of the o r i g i n a l 1843 B a s t i o n . Proposals and p r o j e c t s f o r the r e v i t a l i z a t i o n of V i c t o r i a ' s downtown i n v o l v e three major aspects: the p r o v i s i o n of a c c e s s i b i l i t y t o the downtown area; the p r o v i s i o n of p a r k i n g , and the renewal of downtown i n many of the ways discussed i n previous chapters. Reasons f o r concern over the v i a b i l i t y of downtown were f i r s t expressed i n 1956 w i t h the appearance of a growing t r a f f i c and p a r k i n g problem and l a t e r i n the urban renewal study by the C a p i t a l Regionc.Planning Board of B.C. which emphasized the amount of vacant and d e r e l i c t space as w e l l as the parking problem. These r e p o r t s w i l l be discussed i n l a t e r VICTORIA IN RELATION TO THE CAPITAL REGION MAP. 1 SOURCE- CAPITAL REGION PLANNING BOARD COMMERCIAL AREA . MM C O R E THE C O R E OFTHE CENTRAL BUSINESS DISTRICT M A P 2 V ICTOR IA . B.C. SOURCE- CAPITAL REGION PLANNING BOARD 78 s e c t i o n s . Concern deepened w i t h the development of two r e g i o n a l shopping c e n t e r s , one i n 1962 and the other i n 1965. Previous t o examining renewal e f f o r t s i n downtown V i c t o r i a , a framework f o r achievement should be developed i n the form of suggested goals f o r such a c i t y . Although many might be suggested, four general goals w i l l be proposed as a b a s i s f o r d i s c u s s i o n . 1. Downtown should be a e s t h e t i c a l l y a t t r a c t i v e , i n s p i r i n g , and s t i m u l a t i n g w h i l e at the same time p r o v i d i n g r e l a x a t i o n i n some areas. 2. Downtown must be compact and e f f i c i e n t i n order to provide the most acceptable atmosphere f o r business and commerce. I t should be r e a d i l y a c c e s s i b l e and have good c i r c u l a t i o n throughout the area. 3. Downtown should be maintained i n such a manner that i t w i l l be economically h e a l t h y not only w i t h i n i t s own business community but f o r i t s t r i b u t a r y r e g i o n . 4. F i n a l l y , downtown should provide the best there i s of urban l i v i n g i n terms of r e c r e a t i o n , entertainment, c u l t u r a l , and commercial f a c i l i t i e s . Given such a set of goals a c i t y must have s u f f i c i e n t reason to improve i t s present c e n t r a l business d i s t r i c t area r a t h e r than attempt the c r e a t i o n of an e n t i r e l y new town center. For V i c t o r i a , there are s e v e r a l reasons. F i r s t , although a c c e s s i b i l i t y i s p r e s e n t l y a problem, reference to Maps 1 and 3 w i l l show that the present c e n t r a l business d i s t r i c t forms a d e f i n i t e f o c a l p o i n t f o r the b u i l t up area of the C a p i t a l Region. As shown i n Map 3, downtown could be r e a d i l y a c c e s s i b l e and p r o v i s i o n of an adequate t r a n s p o r t a t i o n system would g r e a t l y r e l i e v e the C i t y 1 s present t r a f f i c problem. Further d i s c u s s i o n of t h i s point Q7TTTTJ U R B A N A R I A « M > MAJOR M W V MAJOR HIGHWAY-CONCEPT FOR THE CAPITAL REGION M A P . 3 S O U R C E - CAP ITAL REGION PLANNING BOARD 80 w i l l not be undertaken since improvement of the s i t u a t i o n depends to a great extent on d e c i s i o n s by the p r o v i n c i a l r a t h e r than l o c a l govern-ment. I t i s important, however, that the need be recognized i n a t o t a l p l anning program. Second, the core i s p r e s e n t l y w e l l defined and appears economically h e a l t h y d e s p i t e the challenge of the two r e g i o n a l shopping ce n t e r s . The present value of development i n downtown i s approximately 90 m i l l i o n d o l l a r s and downtown provides 25 percent of the C i t y ' s assessment. Future years w i l l undoubtedly show a trend towards increased o f f i c e and s p e c i a l i z e d r e t a i l use as has been the s i t u a t i o n i n most North American c i t i e s . T h i r d , the downtown area i s most adequate i n terms of the present p o p u l a t i o n s i z e of the C a p i t a l Region and that of the near f u t u r e . V i c t o r i a C i t y supported a p o p u l a t i o n of 21,000 i n 1900 and by 1910 t h i s increased to 30,000. Since that time the p o p u l a t i o n has increased to 56,464 i n 1966. In a trend which has already begun f u t u r e p o p u l a t i o n increase w i l l take place mainly i n other p a r t s of the m e t r o p o l i t a n r e g i o n which had a p o p u l a t i o n of 175,000 i n 1966. F i n a l l y , i t i s of very great importance that V i c t o r i a maintain a h i g h q u a l i t y core f o r besides being the p r i n c i p a l source of government i n B r i t i s h Columbia i t i s a l s o an important t o u r i s t center. 81 The Role of L o c a l and Federal Governments i n V i c t o r i a ' s CBD R e v i t a l i z a t i o n ' During the past ten years there has been s u b s t a n t i a l e f f o r t on the part of both government and p r i v a t e e n t e r p r i s e i n renewal e f f o r t s which confirm t h e i r f a i t h i n the thoughts expressed above. Although renewal e f f o r t s have incorporated t o t a l redevelopment as w e l l as r e h a b i l i t a t i o n , only r e h a b i l i t a t i o n w i l l be discussed here. E a r l i e s t concern came i n 1956 over t r a f f i c and parking problems and a study was made whose proposals l e d t o the formation of a V i c t o r i a Downtown Improvement Association.*- In 1958, at the request of the A s s o c i a t i o n and the V i c t o r i a C i t y C o u n c i l , the C i t y ' s Engineering Department was c a l l e d upon to develop a p l a n f o r the c e n t r a l business d i s t r i c t ; the r e s u l t being the V i c t o r i a Downtown Improvement P l a n , 2 I t s proposals suggested the c o n s t r u c t i o n of three p e d e s t r i a n m a l l s and a l a r g e p arking garage. A money by-law presented to the e l e c t o r a t e i n December of 1958 was r a t i f i e d but l e g a l and other impediments prevented i t s implementation. A p a r k i n g garage about one-half the s i z e of the one proposed has since been constructed on the suggested s i t e . The C a p i t a l Region Planning Board of B.C. was commissioned i n 1960 to make an urban renewal study of the C i t y of V i c t o r i a f o r i t was f e l t that b l i g h t e d areas gave the c i t y a poor r e p u t a t i o n i n terms of a depressing and unpleasant environment, drained c i v i c f i n a n c e s , y i e l d e d l e s s i n tax r e t u r n s , and i n t e r f e r e d w i t h the economic and e f f i c i e n t use of l a n d . 3 An examination of the downtown area comprised a s i g n i f i c a n t p a r t of t h i s study. Among suggestions of t h i s r eport were a p e d e s t r i a n 82 m a l l as proposed e a r l i e r ; a p r e c i n c t of c i t y p u b l i c b u i l d i n g s ; the development of the waterfront area i n c l u d i n g B a s t i o n Square; p a i n t i n g , p l a n t i n g , and pole removal; and r e h a b i l i t a t i o n of the Chinatown area which i s on the northeast f r i n g e of downtown. I t f u r t h e r recommended that these p r o j e c t s should be prepared and included i n the c a p i t a l budget program. Between 1961 and 1965 there were a number of p u b l i c improvements which have made a s i g n i f i c a n t d i f f e r e n c e to the downtown area. Overhead e l e c t r i c a l w i r i n g and wooden s t r e e t poles were removed through combined cooperation on the p a r t of C i t y O f f i c i a l s and the B r i t i s h Columbia Hydro and Power A u t h o r i t y . In May of 1961, $58,000 was spent to r e f u r b i s h V i c t o r i a ' s famous c l u s t e r l i g h t s . Commencing i n 1964 and c o n t i n u i n g t o the present time i s the Downtown Paint-Up Plan which through j o i n t c i t i z e n and c i t y p a r t i c i p a t i o n attempts a program of conservation and r e h a b i l i t a t i o n u s i n g a coordinated scheme based on improving the e x t e r i o r appearance of b u i l d i n g s . 4 The 1964 program catered mainly to the i n d i v i d u a l paint-up job but the extension of these plans to f o l l o w i n g years recommended that more coordinated p a i n t i n g , l e t t e r i n g and signs would present a b e t t e r v i s u a l p a t t e r n of s t r e e t frontage. B r i e f l y , the Paint-Up i n v o l v e d the C i t y making a v a i l a b l e f r e e s u p e r v i s i o n i n the implementation of a colour p l a n ; complete b u i l d i n g colour recommenda-t i o n s ; and recommendations on signs and miscellaneous f i x t u r e s i n order to a s s i s t i n c r e a t i n g i n d i v i d u a l i d e n t i t y and a store "image". Further to the improvements of p a i n t there has been a t r e e - p l a n t i n g program on the mainstreet and well-designed l i t t e r c o ntainers have been placed 83 throughout the c e n t r a l business d i s t r i c t . The C i t y ' s Centennial Square p r o j e c t included the r e h a b i l i t a t i o n of the e x i s t i n g C i t y H a l l at a cost of about $250,000 and of a t h e a t r e . The O v e r a l l P l a n f o r V i c t o r i a , as prepared by the C a p i t a l Region Planning Board i n 1965, w h i l e emphasizing the importance of p r i v a t e investment i n the downtown area, made a number of proposals which i n v o l v e the use of r e h a b i l i t a t i o n techniques.-* Among these were the r e h a b i l i t a -t i o n of Chinatown and B a s t i o n Square, and the c o n s t r u c t i o n of semi-m a l l s on one of the downtown s t r e e t s . Adjuncts to these were zoning, t r a n s p o r t a t i o n and parking proposals as w e l l as other p u b l i c works p r o j e c t s . Of the p r o j e c t s recommended, B a s t i o n Square i s p r e s e n t l y being implemented. Figure 4 shows glimpses of present accomplishment i n the Square. In order t o understand the r o l e of l o c a l and f e d e r a l govern-ments i n such a p r o j e c t , the d e t a i l s of development w i l l be discussed i n f u l l . B a s t i o n Square i s an area which has a l t e r n a t e l y been the scene of major a c t i v i t y and complete neglect during the past one hundred years. F i r s t a place of m e r c a n t i l e importance beside the o r i g i n a l p a l i s a d e s of Fort V i c t o r i a , B a s t i o n gained p r e s t i g e w i t h the c o n s t r u c t i o n of two court house b u i l d i n g s . When at the end of the nineteenth century there was an economic s h i f t of i n f l u e n c e away from B a s t i o n Square, the o f f i c e s and h o t e l s became warehousing, and blacktop over the s t r e e t areas provided more room f o r p a r k i n g . With the removal of the Court House f a c i l i t i e s to another part of the C i t y , B a s t i o n Square f i n a l l y d i e d . 85 The f i r s t step towards complete r e b i r t h of B a s t i o n Square came on May 5, 1965 w i t h an a p p l i c a t i o n to C e n t r a l Mortgage and Housing Corporation under S e c t i o n 23 of the N a t i o n a l Housing Act f o r a p r o j e c t which would a l l o w the Square " t o be developed to create a pedes t r i a n concourse where a s e r i e s of i n t e r r e l a t e d l e v e l s together w i t h the tex t u r e s and colours of s o p h i s t i c a t e d landscaping (would) provide a foreground f o r the harbour view." 6 E x t e r i o r and i n t e r i o r renovation of b u i l d i n g s a d j o i n i n g the Square was to be c a r r i e d out by p r i v a t e e n t e r p r i s e i n t e r e s t s f o r other than City-owned b u i l d i n g s . F i n a l agree-ment f o r the f i r s t phase of t h i s p r o j e c t came on October 19, 1965 i n the form shown i n Appendix E'. B a s t i o n Square was o f f i c i a l l y opened at the end of J u l y , 1966, and f u r t h e r a p p l i c a t i o n was made to C e n t r a l Mortgage and Housing Corporation as shown i n Appendix F l f o r f i n a n c i a l support to ca r r y out the p r o j e c t ' s second phase. The costs f o r Phase 1 and estimated costs f o r Phase 2 are shown i n Table 9. When tenders were rec e i v e d f o r Phase 1, they were found to exceed the o r i g i n a l agreement by approximately $70,000.00 and thus the estimate of cost was r e v i s e d upward and the increase agreed t o by both p a r t i e s . Today B a s t i o n Square, besides forming an a t t r a c t i v e promenade area, i s a l s o forming a f o c a l p o i n t f o r much business and c u l t u r a l a c t i v i t y . O f f i c e s , a f u r n i t u r e s t o r e , a r e s t a u r a n t , and the Maritime Museum, are p r e s e n t l y o p e r a t i n g . One b u i l d i n g i s being completely r e h a b i l i t a t e d f o r o f f i c e s , another f o r a s e r i e s of small boutiques w i t h o f f i c e s above. A f u r t h e r b u i l d i n g : has been proposed f o r a c q u i s i t i o n 86 TABLE 9 COST ESTIMATES BASTION SQUARE RESTORATION PROJECTS PHASE 1 1. Surface and A r c h i t e c t u r a l Treatment $ 75,000.00 Made of approximately of: a. S i t e p r e p a r a t i o n , excavation, grading, f i l l 8,000.00 b. Foundations f o r r e t a i n i n g w a l l s , e t c . 6,000.00 c. Paving: B r i c k , precast concrete, concrete, steps 36,000.00 d. R e t a i n i n g and dec o r a t i v e e n c l o s i n g w a l l s 8,000.00 e. Landscaping: Trees, p l a n t e r tubs, tub pads, lawn 6,000.00 f . S p e c i a l s t r u c t u r e s : " b r i d g e " , stairway, pond, f l a g - p o l e , k i o s k , e t c . 8,000.00 g. Miscellaneous 3,000.00 2. B.C. Hydro Remove overhead power l i n e s and repl a c e w i t h underground s e r v i c e i n duct. 50,000.00 3. S t r e e t L i g h t i n g 30 Luminaires - 300 watt e l e c t r i c on brackets ) 10 Gas lanterns_on 10' posts ) Underground gas and e l e c t r i c s e r v i c e s ) 6,000.00 4. Underground S e r v i c e s Replacement a. S a n i t a r y sewer c o n s t r u c t i o n 107' of 8" 2,035.00 b. Storm d r a i n c o n s t r u c t i o n 174' of 8"' 1,165.00 c. Cost of r a i s i n g c a s t i n g and catchbasins 1,500.00 d. Relocate low pressure gas main (Cost to p r o j e c t i s undepreciated value plus rock b l a s t i n g ) 800.00 e. Construct 6n water main (New l o c a t i o n ) to replace e x i s t i n g 4,500.00 $140,000.00 5. P r o f e s s i o n a l Fees and A d m i n i s t r a t i o n 107. 14,000.00 T o t a l cost to pa r t n e r s h i p $154,000.00 6. Recovery. Estimated 50% share of underground E l e c t r i c u t i l i t y cost by B.C. Hydro $ 25,000.00 7. Net l o s s to Par t n e r s h i p $129,000.00 87 TABLE 9 - Continued I . D i s t r i b u t i o n of l o s s to P a r t n e r s h i p Federal Share 50% $ 64,500.00 P r o v i n c i a l Share 25% $ 32,250.00 C i t y Share 25% $ 32,250.00 T o t a l $129,000.00 PHASE 2 1. A c q u i s i t i o n of Dowell B u i l d i n g $ 50,000.00 2. C o n s t r u c t i o n of access i n c l u d i n g d e m o l i t i o n , new w a l l s , e t c . 22,500.00 3. Grading and R e s t o r i n g the South Lanes 9,500.00 4. Entrance and Loading Dock at Humber's 2,000.00 5. Grading and R e s t o r i n g the North Lanes 7,500.00 6. Extension of Commercial A l l e y 2,800.00 7. R e i n s t a t i n g Wharf and Langley S t r e e t s 11,000.00 $105,300.00 P r o f e s s i o n a l Fees 10% 10.500.00 $115,800.00 D i s t r i b u t i o n of Cost Fed e r a l Government 50% $ 57,900.00 P r o v i n c i a l Government 25% $ 28,950.00 M u n i c i p a l Government 25% $ 28.950.00 T o t a l $115,800.00 SOURCE: W i l l i s and C u n l i f f e Engineering L t d . A p p l i c a t i o n f o r Urban Renewal P r o j e c t . B a s t i o n Square R e s t o r a t i o n P r o j e c t Phase 2. V i c t o r i a , B.C.,1966. 88 by the C i t y , f o r f u t u r e r e s a l e to a p r i v a t e owner. The use suggested f o r t h i s b u i l d i n g i s commercial below and r e s i d e n t i a l above. R e h a b i l i t a t i o n e f f o r t s at the l o c a l government l e v e l i n V i c t o r i a have, as i s demonstrated i n the examples given above, been implemented through a d v i s o r y , a d m i n i s t r a t i v e , and f i n a n c i a l techniques. In i t s c a p a c i t y as advisor the C i t y has commissioned two stu d i e s which have suggested programs f o r r e h a b i l i t a t i o n and has encouraged l o c a l business p a r t i c i p a t i o n through a paint-up campaign. The c i v i c a d m i n i s t r a t i o n , besides e n f o r c i n g such by-laws as those d e a l i n g w i t h signs and b u i l d i n g standards, has contracted w i t h the Federal and P r o v i n c i a l governments i n the improvement of B a s t i o n Square and the r e h a b i l i t a t i o n of the C i t y H a l l . Their attempt to improve the p u b l i c areas of the C i t y has. l e d to considerable p r i v a t e investment. Throughout the r e v i t a l i z a t i o n of the c e n t r a l business d i s t r i c t , f i n a n c i a l investment has been made i n such a way as to encourage ra t h e r than i n t e r f e r e w i t h p r i v a t e e n t e r p r i s e . Viewing the t o t a l program, i t i s seen to be one of comprehensive improve-ments w i t h s p e c i a l programs f o r areas of s p e c i a l need. P r i v a t e E n t e r p r i s e Investment i n V i c t o r i a ' s R e v i t a l i z a t i o n In response to the general f e e l i n g that r e v i t a l i z a t i o n was needed i n the V i c t o r i a downtown core and i n conjunction w i t h e f f o r t s of the c i v i c a d m i n i s t r a t i o n , p r i v a t e e n t e r p r i s e has co n t r i b u t e d e n t h u s i a s t i c a l l y to r e h a b i l i t a t i o n e f f o r t s . R e h a b i l i t a t i o n has been undertaken i n many forms: the c o n s t r u c t i o n of a pe d e s t r i a n p r e c i n c t known as Trounce A l l e y ; arcades on two sides of one bl o c k and on one 89 side of another; the c r e a t i o n of shops and o f f i c e s w i t h i n the o l d b u i l d i n g s of B a s t i o n Square; s i n g l e business improvements; and areas which have been part of the "Paint-Up"' campaign. Reference to Map 14/ w i l l show r e n t a l values as they appeared i n 1964, t h e i r range being very wide from approximately $25,00' to $360.00 a f r o n t f o o t . For r e t a i l trades there i s admittedly a c l o s e connection between r e n t a l s and l o c a t i o n a l advantage, however the r e n t a l values provide a good i n d i c a t i o n of downtown p r o s p e r i t y . Reference t o Map V w i l l show that r e h a b i l i t a t i o n has been undertaken i n a l l of these r e n t a l areas. B u i l d i n g permits issued f o r the past ten years were examined f o r twenty-one s t r u c t u r e s which have been a l t e r e d and the cost of a l t e r a t i o n s i s shown i n Table 10. For the most part r e h a b i l i t a t i o n has taken place i n the r e n t a l area which i s at about 50 percent of the highest r e n t . Although c o s t s examined v a r i e d w i t h the type of improve-ments, they can be seen t o be c o n s i d e r a b l e . Since i t i s o f t e n s a i d that r e h a b i l i t a t i o n can be c a r r i e d out near areas of high r e n t a l value but not at the edge of the core, cost of r e h a b i l i t a t i o n and r e n t a l values have been examined f o r two b l o c k s which are at the o u t s k i r t s of the c e n t r a l business d i s t r i c t . (See No. 22 and No. 23 on Map '5) These costs and r e n t a l values are shown i n Table 11 and present an i n t e r e s t i n g p i c t u r e . At f i r s t glance they would appear very uneconomical. They were j u s t i f i e d according to the Trust Company which undertook them by the f a c t that had they not been r e h a b i l i t a t e d , t h e i r r e n t a l rvalues would have continued to drop.'' Although i t represents a long-term a m o r t i z a t i o n , r e n t s w i l l r i s e 1 * RENTAL VALUES IN THE CENTRAL BUSINESS DISTRICT 1964 > * M A P . A SOURCE.-CAPITAL REGION PLANNING BOARD. FORT 3 E 3 2E 3>4 r TT I 2 2-2 BLOCKS 20 EAST-f*' 1 21 TEST 23 to I pHl G O V T S P O N S O R E D P R O J E C T S P R I V A T E E N T E R P R I S E S E E T A B L E 1 1 REHABILITATION PROJECTS IN VICTORIAS C.B.D. M A P 5- S O U R C E - C A P I T A L R E G I O N P L A N N I N G B O A R D N 0 250 5 0 0 I I . S c a l e i n t e e t 92 TABLE 10 COST OF REHABILITATION OF SELECTED STRUCTURES WITHIN THE VICTORIA CBD 1 Year of O r i g i n a l N o / Use Cost Permit B u i l d i n g Permit 1 R e t a i l Furs $18,600 1962 1893 2 Charm School 500 1966 1893 3 R e a l t y 4,300 1965-66 1895 4 Restaurant 5,750 1962 1910 5 R e a l t y 20,000 1966 1895 6 R e a l t y 11,930 1965 1896 7 Dep't Store 33,689 1960-67 8 Shoe Store 4,200 1966 1899 9 Shoe Store 3,500 1966 1899 10 F a b r i c s Store 2,500 1963 1895 11 Shoe Store 5,375 1963 1895 12 Shoe Store 4,000 1963 1895 13 Drug Store 8,094 1957-66 1911 14 R e a l t y 8,800 1964-66 1895 15 D e l i c a t e s s e n S p e c i a l t y Store Drycleaners 20,850 1963 1949 16 R e a l t y 2,000 1965 1912 17 Bakery Restaurant 14,000 1966 1912 18 Shoe Repair 4,500 1965 1893 19 Tr a v e l Agency Hat Shop Shoe Repair 4,075 1965 1930 20 Drycleaners 6,000 1966 1927 21 Accountants 17,000 1965 1909 •Number of business r e f e r s to number as shown on Map V. Source: C i t y of V i c t o r i a B u i l d i n g Permits. 93 TABLE 11 RENTAL VALUES AND ALTERATION COSTS M e l l o r Block - 827 Broughton Street Rents Before A l t e r a t i o n s : 819 Broughton S t . 823 Broughton S t . 825 Broughton S t . $120.00 85.00 185.00 $390.00 x 12 = $4680 Per Year Rents A f t e r A l t e r a t i o n s : 31.3.67 819 Broughton S t . 819-A Broughton S t . 823 Broughton S t . 825 Broughton S t . 827 Broughton S t . 829 Broughton S t . $133.00 138.50 120.00 88.00 138.00 150.00 $767.50 x 12 = $9210 Per Year Cost of A l t e r a t i o n s : December 1961 Main F l o o r A l t e r a t i o n s -New Fronts W i r i n g , Plumbing, D i v i d i n g S t o r e s , A r c h i t e c t T o t a l Cost $25,013.96 Fort Block - 1101-19 Fort S t . 1023-33 Cook S t . Rents Before A l t e r a t i o n s : 1025, 1027 & 1029 Cook S t . $180.00 1031 Cook S t . 60.00 1033 Cook S t . 60.00 1101 Fort S t . 160.00 1109 Fort S t . 68.00 1111 Fort S t . 68.00 1113 Fort S t . 68.00 1115-1117 F o r t S t . 180.00 1119 Fort S t . 90.00 $934.00 x 12 = $11,208 Per Year 94 TABLE 11 - Continued Rents A f t e r A l t e r a t i o n s : 31.3.67 1025, 1027 Cook S t . 1029 Cook S t . 1031 Cook S t . 1033 Cook S t . 1101 Fort S t . 1109 Fort S t . 1111 Fort S t . 1113 Fort S t . 1115, 1117 Fort S t . 1119 Fort S t . $230.00 90.00 130.00 120.00 300.00 105.00 105.00 105.00 295.00 175.00 $1,655.00 x 12 = $19,860 Per Year Cost of A l t e r a t i o n s : 1962 $115,584.37 Source: Royal Trust Company, V i c t o r i a , B.C. 95 w i t h i n coming years and thus be a worth while investment. I t would seem from the above information that f i n a n c i n g has not been a major problem, however, t h i s i s not always the case. As only the B a s t i o n Square area i s p r e s e n t l y involved i n a renewal scheme the other businesses must f i n d f i n a n c i n g from other sources than through loans from C e n t r a l Mortgage and Housing Corporation. Finance companies c o n t r i b u t e much of the f i n a n c i a l support. For other sources, two may be suggested. Small business loans are a v a i l a b l e from banks at 5% percent i n t e r e s t but are apparently used infrequently.** Secondly, the Federal Government has created a body known as the I n d u s t r i a l Development Bank to promote the economic we l f a r e of Canada by i n c r e a s i n g the e f f e c t i v e n e s s of monetary a c t i o n through ensuring the a v a i l -a b i l i t y of c r e d i t to i n d u s t r i a l e n t e r p r i s e s which may reasonably be expected to prove s u c c e s s f u l i f a high l e v e l of n a t i o n a l income and employment i s maintained, by supplementing the a c t i v i t i e s of other lenders and by p r o v i d i n g c a p i t a l a s s i s t a n c e t o i n d u s t r y w i t h p a r t i c u l a r c o n s i d e r a t i o n t o the f i n a n c i n g problems of small e n t e r p r i s e s . 9 I t i s now p o s s i b l e f o r t h i s Bank t o lend to small business such as r e t a i l o u t l e t s or r e s t a u r a n t s r a t h e r than j u s t i n d u s t r i a l e n t e r p r i s e s . Loans are made at 7% percent i n t e r e s t r a t e and are made where evidence i s shown of r e f u s a l by two other sources and where the amount invested and the character of that investment a f f o r d s the Bank reasonable pro-t e c t i o n . 1 ^ Loans from such a bank represent a good source of funds f o r businesses which are not part of a renewal scheme and i t i s p o s s i b l e t h a t there should be greater c o o r d i n a t i o n between the I n d u s t r i a l Development Bank and C e n t r a l Mortgage and Housing Corporation. 96 Summary to Chapter F i v e L o c a l government and p r i v a t e investment have each c o n t r i b u t e d t o the r e v i t a l i z a t i o n of V i c t o r i a ' s c e n t r a l business d i s t r i c t w i t h i n the past ten years. I t would appear that t h e i r p a r t n e r s h i p has been a s u c c e s s f u l one and thus worthy of f u t u r e emulation. 97 Footnotes t o Chapter F i v e *"D.J. Faustman, T r a f f i c and Parking Improvement P l a n . C e n t r a l D i s t r i c t . C i t y of V i c t o r i a , B.C. P a r t s One and Two ( V i c t o r i a : The C i t y , 1956). ^ C i t y of V i c t o r i a Engineering Department, Downtown V i c t o r i a Improvement P l a n ( V i c t o r i a : The C i t y , October 28, 1958). ^ C a p i t a l Region Planning Board of B.C., Urban Renewal Study f o r V i c t o r i a ( V i c t o r i a : The Board, 1961). ^ C i t y of V i c t o r i a , Downtown Paint-Up P l a n '65 ( V i c t o r i a : The C i t y , 1965). ^ C a p i t a l Region Planning Board of B.C., O v e r a l l Plan f o r V i c t o r i a ( V i c t o r i a : The Board, 1965). % i l l i s and C u n l i f f e Engineering L t d . A p p l i c a t i o n f o r Urban Renewal P r o j e c t . B a s t i o n Square R e s t o r a t i o n P r o j e c t Phase 2 ( V i c t o r i a : W i l l i s and C u n l i f f e , 1966), p. 7. ''Personal Interview w i t h Mr. Jack F r a s e r , Royal Trust Company, V i c t o r i a , B.C., A p r i l , 1967. ^Personal Interview w i t h Mr. A. Watt, Canadian Imperial Bank of Commerce, Main Branch, V i c t o r i a , B.C., A p r i l , 1967. 9Government of Canada, I n d u s t r i a l Development Bank Act 1944-45 (Ottawa: The Queen's P r i n t e r , 1961) C.44, S . l , p. 3. ^ P e r s o n a l Interview w i t h Mr. J . A u l d , I n d u s t r i a l Development Bank, V i c t o r i a , B.C., A p r i l , 1967. CHAPTER SIX POLICIES FOR THE IMPLEMENTATION OF COMMERCIAL REHABILITATION The challenges of urban renewal are to a t t a i n s o c i a l harmony, to create a p h y s i c a l s y n t h e s i s , to b u i l d b e a u t i f u l l y , and to work out a s a t i s -f a c t o r y r e l a t i o n s h i p between p u b l i c and p r i v a t e a c t i v i t y . . . Paraphrased from Stanley R. P i c k e t t , "Urban Renewal - The Fundamentals of Pl a n n i n g " Ontario Housing, V o l . 11, No. 4. In Chapters Four and F i v e of t h i s t h e s i s examination has been made of the r e h a b i l i t a t i o n p r o j e c t s i n c e n t r a l business d i s t r i c t s which have 'urban renewal schemes', and of an e v i d e n t l y s u c c e s s f u l downtown r e v i t a l i z a t i o n i n V i c t o r i a , B.C. A r i s i n g out of these chapters and i n f u l l cognizance of the many f a c e t s of commercial r e h a b i l i t a t i o n , i t i s now p o s s i b l e to propose a program f o r commercial r e h a b i l i t a t i o n to be used i n the c e n t r a l business d i s t r i c t s of Canadian m u n i c i p a l i t i e s which w i l l take best advantage of the e f f o r t s of government and p r i v a t e e n t e r p r i s e . The need f o r r e v i t a l i z a t i o n of our c i t y centers has occurred and w i l l occur f o r three major reasons: the b l i g h t i n g e f f e c t of age and obsolescence; the i n c r e a s i n g needs of a r a p i d l y growing urban po p u l a t i o n ; and the importance to an e n t i r e c i t y of economic h e a l t h i n 98 99 the downtown area. To date most renewal e f f o r t s i n c e n t r a l business d i s t r i c t s have been a combination of the r e s u l t s of p r i v a t e e n t e r p r i s e undertaking what was p r o f i t a b l e and of government supplementing such e f f o r t s i n the framework of the present l e g i s l a t i o n . The use of commercial r e h a b i l i t a t i o n techniques provides a program i n which s i g n i f i c a n t r e s u l t s can be achieved by p r i v a t e e n t e r p r i s e w h i l e i n v o l v i n g government at the advi s o r y and a d m i n i s t r a t i v e l e v e l s r a t h e r than at the f i n a n c i a l l e v e l v I t has been stat e d that The primary concern of government sponsored renewal i s thus w i t h below average aspects of the present; the primary con-cern of renewal by p r i v a t e e n t e r p r i s e i s w i t h the above average aspects of the f u t u r e . 1 Commercial r e h a b i l i t a t i o n provides a method by which both government and p r i v a t e e n t e r p r i s e can improve upon 'the below average aspects of the present' i n order t o reap f u l l b e n e f i t of the 'above average aspects of the f u t u r e . ' Program f o r A c t i o n The f i r s t step i n any planning process i s the i d e n t i f i c a t i o n of a problem through c a r e f u l i n v e s t i g a t i o n . In the case of the d e t e r i o r a -t i o n of downtown areas t h i s i n v e s t i g a t i o n may be touched o f f by the combined concern of l o c a l government and l o c a l business i n t e r e s t s . Research must determine i f the downtown area i s worthy of renewal, whether i t can meet the commercial and c u l t u r a l needs of the urban pop u l a t i o n and whether i t can be made e a s i l y a c c e s s i b l e . 100 R e v i t a l i z a t i o n then being the d e s i r e d and stated o b j e c t i v e , p o l i c i e s and procedures may be formed f o r a workable program. A f t e r a review of present r e h a b i l i t a t i o n e f f o r t s i t i s f e l t t hat these p o l i c i e s must coordinate government and p r i v a t e e n t e r p r i s e i n the s p e c i f i c manner which w i l l be d e t a i l e d below. The M u n i c i p a l Government Role R e h a b i l i t a t i o n e f f o r t s w i t h i n a c e n t r a l business d i s t r i c t must be l a r g e l y the r o l e of m u n i c i p a l governments w i t h the Federal government p a r t i c i p a t i n g as l e g i s l a t i o n a l l o w s . This r o l e can be expressed i n terms of a d v i s o r y , a d m i n i s t r a t i v e , and f i n a n c i a l r e s p o n s i b i l i t i e s . I t would appear from the case-study that the a d v i s o r y r o l e i s extremely s i g n i f i c a n t . Through c a r e f u l planning the d e t e r i o r a t i o n of the downtown area can be checked i n a comprehensive manner and by i n c o r p o r a t i n g a l l of the renewal techniques of redevelopment, r e h a b i l i t a t i o n , and conserva-t i o n . In terms of r e h a b i l i t a t i o n alone, advice on programs such as V i c t o r i a ' s 'Paint-Up' campaign can be given, municipal s e r v i c e s can be improved throughout the downtown area, and s p e c i a l p r o j e c t areas may be designated as 'urban renewal schemes' . Although the design s o l u t i o n of a shopping m a l l surrounded by parking has f r e q u e n t l y been used, i t i s f e l t that design must be i n d i v i d u a l to each c i t y , and f u r t h e r that a s e r i e s of small p r o j e c t s may b e t t e r encourage p r i v a t e e n t e r p r i s e than w i l l one l a r g e p r o j e c t . The m u n i c i p a l government may take advantage of s e v e r a l of i t s powers i n the encouragement of commercial r e h a b i l i t a t i o n . As i s 101 f r e q u e n t l y the case i n the United S t a t e s , and as shown i n Appendices C and D, code standards may be e s t a b l i s h e d i n order to improve c o n d i t i o n s . I f the area i n which these standards are being enforced has been designated f o r urban renewal, p r o v i s i o n i s o f t e n made to a l l o w b u i l d i n g s to be acquired by p u b l i c money then e i t h e r leased or s o l d back to p r i v a t e businesses i f the present owner refuses to cooperate. Second, the mu n i c i p a l government may help the improvement of an area by e s t a b l i s h i n g a h i g h - q u a l i t y program of p u b l i c works. F i n a l l y , the m u n i c i p a l govern-ment i n p a r t n e r s h i p w i t h the F e d e r a l government may e s t a b l i s h an "urban renewal scheme" thus e n a b l i n g f i n a n c i a l a s s i s t a n c e to be given. While code standards may meet p h y s i c a l requirements they do not achieve a coordinated or p a r t i c u l a r l y a t t r a c t i v e downtown area and p u b l i c a c q u i s i t i o n of b u i l d i n g s too o f t e n causes unnecessary hardship to p r i v a t e e n t e r p r i s e . While i t i s granted that p u b l i c a c q u i s i t i o n w i t h i n an "urban renewal scheme" may o f t e n be a b s o l u t e l y imperative, the V i c t o r i a case-study shows how e f f e c t i v e l o c a l government can be when i t operates as advisor and provider of p u b l i c works. I t i s w i t h i n the realm of f i n a n c i a l encouragement that most urban renewal p o l i c i e s have been suggested i n recent years. As has been shown i n Chapter F i v e , p r i v a t e e n t e r p r i s e would appear to be capable of considerable accomplishment i n terms of commercial r e h a b i l i t a t i o n without government i n t e r v e n t i o n . Encouragement by i n c e n t i v e s i n the form of exemption from property t a x , from income t a x , or from s a l e s tax on b u i l d i n g m a t e r i a l s i s r e j e c t e d although they may be u s e f u l f o r other than commercial r e h a b i l i t a t i o n . Tax 102 p e n a l t i e s on b u i l d i n g s needing r e h a b i l i t a t i o n are s i m i l a r l y r e j e c t e d as being too d i f f i c u l t to administer and not i n the best i n t e r e s t s of a comprehensive r e v i t a l i z a t i o n program. F i n a n c i a l a i d to improvements as i n the B a s t i o n Square example i s ; condoned f o r they pave the way f o r r e h a b i l i t a t i o n by p r i v a t e e n t e r p r i s e i n an area which would otherwise be uneconomical. F i n a n c i a l a i d may a l s o be given t o the i n d i v i d u a l owner but t h i s w i l l be discussed below. Government p a r t i c i p a t i o n i n commercial r e h a b i l i t a t i o n i s thus seen t o be most e f f e c t i v e i n i t s a d v i s o r y and a d m i n i s t r a t i v e c a p a c i t y . F i n a n c i a l a i d should be r e s t r i c t e d wherever p o s s i b l e to p u b l i c works. The Role of P r i v a t e E n t e r p r i s e P r i v a t e e n t e r p r i s e may be considered to p a r t i c i p a t e at two l e v e l s of commercial r e h a b i l i t a t i o n . The f i r s t l e v e l i n v o l v e s the c o n t i n u a l modernization and improvement of business premises and i s c a r r i e d on at a l l times i f business i n t e r e s t s f e e l that an economic cl i m a t e e x i s t s . The second l e v e l i n v o l v e s the r e h a b i l i t a t i o n of "gray 1 1 areas of a c e n t r a l business d i s t r i c t and of t o t a l l y b l i g h t e d areas. As has been shown i n the case-study, f i n a n c i a l a i d w i l l o f t e n be forthcoming to r e h a b i l i t a t e '"gray™ areas i f they appear t o have an economic p o t e n t i a l . P r o f i t s from such r e h a b i l i t a t i o n may i n v o l v e a long-term a m o r t i z a t i o n of costs but they w i l l come and they w i l l prevent complete d e t e r i o r a t i o n . P a r t i c i p a t i o n i n renewal of extreme b l i g h t may o f t e n r e q u i r e the use of C e n t r a l Mortgage and Housing Corporation loans i f property i s w i t h i n an "urban renewal scheme"' or 103 loans from an agency such as the I n d u s t r i a l Development Bank i n other than urban renewal areas. Summary to Chapter S i x Government p a r t i c i p a t i o n i n commercial r e h a b i l i t a t i o n i s thus seen to be most e f f e c t i v e i n i t s advi s o r y and a d m i n i s t r a t i v e c a p a c i t y . F i n a n c i a l a i d should be r e s t r i c t e d wherever p o s s i b l e to p u b l i c works. Through c r e a t i o n of the s e t t i n g f o r an a t t r a c t i v e and economically hea l t h y downtown, p r i v a t e e n t e r p r i s e w i l l be encouraged to p a r t i c i p a t e i n comprehensive r e v i t a l i z a t i o n . 104. Footnotes to Chapter S i x •'•Murray V. Jones, The Role of P r i v a t e E n t e r p r i s e i n Urban Renewal (Toronto: M e t r o p o l i t a n Toronto Planning Board, March, 1966), p. 6. 105 CHAPTER SEVEN REVIEW AND EVALUATION OF THE STUDY Summary of the Study The b a s i c aim of t h i s t h e s i s i s to evolve p o l i c i e s which may be followed i n the use of commercial r e h a b i l i t a t i o n as a technique f o r the r e v i t a l i z a t i o n of c e n t r a l business d i s t r i c t s w i t h i n Canada's c i t i e s . I t i s considered necessary that these p o l i c i e s be e s t a b l i s h e d at the l o c a l government l e v e l , that they be coordinated w i t h i n the f e d e r a l and l o c a l government l e v e l s , and that they be e s t a b l i s h e d so as to provide maximum encouragement to p r i v a t e e n t e r p r i s e . I t i s thus hypothesized that In order t o achieve a comprehensive program of c e n t r a l business d i s t r i c t renewal u t i l i z i n g r e h a b i l i t a t i o n measures, i t i s e s s e n t i a l that there be coordinated p a r t i c i p a t i o n of f e d e r a l and l o c a l governments at the ad v i s o r y , a d m i n i s t r a t i v e , and f i n a n c i a l l e v e l s i n con-j u n c t i o n w i t h the e f f o r t s of p r i v a t e e n t e r p r i s e . Inherent i n the development of p o l i c i e s f o r the u t i l i z a t i o n of commercial r e h a b i l i t a t i o n i s the n e c e s s i t y f o r a f u l l understanding of the problems c r e a t i n g commercial b l i g h t i n downtown areas and of the technique of r e h a b i l i t a t i o n i t s e l f . For t h i s reason, trends i n the l o c a t i o n of commercial e n t e r p r i s e were examined i n order to demonstrate the e f f e c t which the suburban shopping center and the automobile have 106 had upon c e n t r a l business d i s t r i c t s . The p h y s i c a l improvement p o s s i b l e to downtown areas through r e h a b i l i t a t i o n was i l l u s t r a t e d by reference to p r o j e c t s i n Great B r i t a i n , the United S t a t e s , and Canada. As these examples showed, commercial r e h a b i l i t a t i o n i n i t s implementation i n v o l v e s many f a c e t s of the l i f e of c e n t r a l business d i s t r i c t s . P h y s i c a l improvement to be s u c c e s s f u l must be c a r r i e d out i n areas which meet the p r i n c i p l e s of r e t a i l or business l o c a t i o n and which are both a c c e s s i b l e by the automobile and e f f i c i e n t f o r the p e d e s t r i a n . Although i t may be d i f f i c u l t to e s t a b l i s h a u n i f o r m l y p l e a s i n g atmosphere i n a e s t h e t i c terms, commercial r e h a b i l i t a t i o n s t r i v e s to achieve both good design and a decent, safe, and s a n i t a r y environment. The s o c i a l importance of downtown as a focus f o r an urban pop u l a t i o n must be emphasized i n any program f o r downtown r e v i t a l i z a t i o n w h i l e s t i l l r e c o g n i z i n g the need f o r a strong r e t a i l trade and thus the importance of customer consumption p a t t e r n s . Economic aspects are p a r t i c u l a r l y important f o r they provide a d i s c r e e t measure f o r the strength of a c e n t r a l business d i s t r i c t as w e l l as f o r the c o s t s of r e v i t a l i z a t i o n . F i n a l l y , r e h a b i l i t a t i o n i n that i t i s a renewal measure,must be placed i n the context of l e g i s l a t i o n f o r government-sponsored renewal. I t i s seen that commercial r e h a b i l i t a t i o n p r e s e n t l y forms only a very small part of t h i s l e g i s l a t i o n and i s dependent upon in v o l v e d areas being part of a designated "urban renewal scheme." Commercial r e h a b i l i t a t i o n has been implemented i n a number of Canadian and American c i t i e s and thus questionnaires were sent to c i t i e s which according to the f e d e r a l renewal agencies had urban renewal 107 schemes i n v o l v i n g t h i s type of r e v i t a l i z a t i o n . By r e s t r i c t i n g the questionnaires to government-sponsored p r o j e c t s i t was hoped to determine b e t t e r the r e l a t i o n s h i p between government and p r i v a t e e n t e r p r i s e . Response to the questionnaires came mainly from American c i t i e s and showed a number of i n t e r e s t i n g f a c t s . The problem of commercial b l i g h t does not r e s t r i c t i t s e l f to any p a r t i c u l a r c i t y s i z e f o r p r o j e c t s were being undertaken i n c i t i e s from 10,000 to over two m i l l i o n p o p u l a t i o n . There does not appear to be any one c l e a r d e f i n i t i o n of r e h a b i l i t a t i o n i n commercial areas f o r some c i t i e s i n c l u d e p u b l i c works' improvements w h i l e others do not. The emphasis was e i t h e r on an improvement through r e a l i z a t i o n of code standards or on a s i n g l e p r o j e c t such as the con-s t r u c t i o n of a shopping m a l l . Most p r o j e c t areas were very l a r g e , r e p r e s e n t i n g a good p o r t i o n of the c e n t r a l business d i s t r i c t , but i t was d i f f i c u l t to determine how much of t h i s area was involved i n redevelopment and how much i n r e h a b i l i t a t i o n . In terms of the types of commercial land use r e h a b i l i t a t e d the p r o j e c t s were very comprehensive. Their costs were s t a t e d t o be one hundred percent the r e s p o n s i b i l i t y of p r i v a t e e n t e r p r i s e w i t h any government p a r t i c i p a t i o n probably being through p r o v i s i o n of s e r v i c e s or loan programs. O r i g i n a l i n s p i r a t i o n f o r these p r o j e c t s came p r i m a r i l y from a combination of l o c a l government and l o c a l business concern r a t h e r than from any planning bodies. For the few c i t i e s whose p r o j e c t s were completed the problems encountered seemed to be e i t h e r f i n a n c i a l or the r e s u l t of f r i c t i o n between govern-ment and p r i v a t e e n t e r p r i s e . 108 A case-study approach i s used i n the study of V i c t o r i a , B r i t i s h Columbia, as an example of commercial r e h a b i l i t a t i o n . Programs used are examined i n order to i s o l a t e the p o l i c i e s which form an e v i d e n t l y s u c c e s s f u l downtown r e v i t a l i z a t i o n . The l o c a l government r o l e i s f i r s t examined and i s seen to be one of enthusiasm and persuasiveness combined w i t h comprehensive p u b l i c works to make the downtown area more a t t r a c t i v e . P r i v a t e investment i s studied i n order to demonstrate what can be achieved without government f i n a n c i a l a i d when a healthy business community i s encouraged. The r o l e of the I n d u s t r i a l Development Bank of Canada i s suggested as a type of 'missing l i n k ' to be used by businesses which are not part of urban renewal schemes. From information c o l l e c t e d i n the methods described above fu t u r e p o l i c i e s are suggested to u t i l i z e more e f f e c t i v e l y the techniques of commercial r e h a b i l i t a t i o n i n c e n t r a l business d i s t r i c t s of Canadian c i t i e s . B r i e f l y they recommend that the government r o l e be extended i n a d v i s o r y and a d m i n i s t r a t i v e c a p a c i t i e s and i n the p r o v i s i o n of p u b l i c works but that p r i v a t e e n t e r p r i s e be allowed to operate f r e e l y i n the r e h a b i l i t a t i o n of i n d i v i d u a l s t r u c t u r e s . E v a l u a t i o n of the Study The Hypothesis: L i m i t a t i o n s and C r i t i c i s m s The hypothesis of the study would appear to be e s s e n t i a l l y c o r r e c t w i t h a p o s s i b l e exception being the r o l e of government i n the f i n a n c i a l aspects of commercial r e h a b i l i t a t i o n . I t s l i m i t a t i o n s a r i s e 109 l a r g e l y from the assumptions which are necessary i n order to p r e s c r i b e a program of commercial r e h a b i l i t a t i o n . In an attempt to study only r e h a b i l i t a t i o n other forms of renewal may appear l e s s s i g n i f i c a n t and yet they are o f t e n e s s e n t i a l i n a comprehensive program of r e v i t a l i z a t i o n . F u r t h e r , the hypothesis f a i l s to s t i p u l a t e which types of land use should be r e t a i n e d i n the c e n t r a l business d i s t r i c t and thus be r e h a b i l i t a t e d . The Study: L i m i t a t i o n s and C r i t i c i s m s The study c o n s i s t s of three major s e c t i o n s : an extensive l i t e r a t u r e review i s used to examine the main p h y s i c a l , s o c i a l , economic, and l e g i s l a t i v e aspects of commercial r e h a b i l i t a t i o n ; response to questionnaires i s t a b u l a t e d i n order to review and evaluate the progress of government-sponsored commercial r e h a b i l i t a t i o n programs i n the United States and Canada; and the case-study method i s used to examine i n t e r a c t i o n between government and p r i v a t e e n t e r p r i s e i n r e h a b i l i t a t i o n e f f o r t s . There i s no assurance- that a l l of the aspects of commercial r e h a b i l i t a t i o n have been considered p a r t i c u l a r l y w i t h respect to a c t u a l p h y s i c a l change and the costs i n v o l v e d . The government r a t h e r than the p r i v a t e e n t e r p r i s e r o l e being the most f r e q u e n t l y documented, t h i s study may have been g u i l t y of neglect of the ideas of p r i v a t e i n v e s t o r s . The questionnaire method of study, while i t gathers considerable i n f o r -mation, has weaknesses because of misunderstanding of questions and by asking f o r s p e c i f i c f a c t s where ideas and p o l i c i e s might have been more u s e f u l . L i m i t a t i o n s of the case-study a r i s e from the f a c t that V i c t o r i a does not represent and never has represented the worst examples of 110 commercial b l i g h t w i t h i n the c e n t r a l business d i s t r i c t . V i c t o r i a i s a l s o most f o r t u n a t e i n having a stock of very f i n e and a t t r a c t i v e o l d b u i l d i n g s which may be used as a b a s i s f o r r e h a b i l i t a t i o n . Further Research The study has d i s c l o s e d a number of areas f o r f u r t h e r research. Paramount among these i s the need f o r an economic c o s t - b e n e f i t a n a l y s i s of commercial r e h a b i l i t a t i o n . Through t h i s a n a l y s i s i t should be p o s s i b l e to determine the d i v i d i n g l i n e between the need f o r redevelopment, f o r r e h a b i l i t a t i o n , or f o r conservation. I t might a l s o suggest the most p r a c t i c a b l e economic combination of these three measures. Further study i s needed to determine j u s t how much of a c e n t r a l business d i s t r i c t can be r e h a b i l i t a t e d , and how much must be l e f t i n i t s present form i n order to act as a place f o r the in c u b a t i o n of new commercial a c t i v i t i e s . The place of the marginal business i n the c e n t r a l business d i s t r i c t must be examined. F i n a l l y , much commercial r e h a b i l i t a t i o n i s achieved through n a t u r a l market processes r a t h e r than c o n s c i o u s l y d i r e c t e d e f f o r t and the r e l a t i o n s h i p between these two needs c l o s e r d e f i n i t i o n . V a l i d i t y of Findings and the Hypothesis Subject to the l i m i t a t i o n s suggested above, i t i s considered that commercial r e h a b i l i t a t i o n should be encouraged as a technique f o r renewal w i t h i n downtown areas, and that i t i s f a i r to uphold the b a s i c v a l i d i t y of the hyp o t h e s i s . APPENDIX A QUESTIONNAIRE CONCERNING COMMERCIAL REHABILITATION SENT TO CANADIAN AND AMERICAN CITIES WITH ACCOMPANYING LETTER OF EXPLANATION 112 QUESTIONNAIRE The purpose of t h i s questionnaire i s to determine: 1. The meaning attached to r e h a b i l i t a t i o n w i t h i n the CBD commercial area 2. The extent of r e h a b i l i t a t i o n p r o j e c t s i n execution or planned f o r Canadian and American c i t i e s 3. The source of i n s p i r a t i o n f o r these p r o j e c t s 4. Problems encountered w i t h these p r o j e c t s Name of C i t y 1. ' R e h a b i l i t a t i o n ' as defined by your planning o f f i c e w i t h regard to CBD commercial areas r e f e r s t o : a. p a i n t i n g and c l e a n i n g b u i l d i n g s b. improvement of t r a f f i c access c. improvement of parking d. s t r e e t improvements such as p l a n t i n g of t r e e s , p r o v i s i o n of s t r e e t f u r n i t u r e e. r e d e c o r a t i o n of i n t e r i o r s of b u i l d i n g s . f . management consultant s e r v i c e f o r business g. c o n t r o l of signs h. p r o v i s i o n of s t r e e t l i g h t i n g i . other (please s p e c i f y ) Comment s: 2. Commercial r e h a b i l i t a t i o n w i t h i n the c e n t r a l business d i s t r i c t of your c i t y i s p r e s e n t l y i n execution or p r o j e c t e d : a. on an a r e a l b a s i s ; on a bl o c k b a s i s ; on a s i n g l e business b a s i s . I f on an a r e a l b a s i s , how large an area? 113 b. I s t h i s r e h a b i l i t a t i o n part of a l a r g e r program? Yes No I f yes, does t h i s l a r g e r program a l s o i n v o l v e : redevelopment ; other r e h a b i l i t a t i o n ; or conservation c. I t in c l u d e s such commercial land use f u n c t i o n s as: s p e c i a l t y shops personal and business s e r v i c e s department stores other shopping o f f i c e b u i l d i n g s theatres r e s t a u r a n t s other (please s p e c i f y ) d. The average age of b u i l d i n g s being r e h a b i l i t a t e d i s e. R e h a b i l i t a t i o n i n t h i s p r o j e c t w i l l i n c l u d e : a. p a i n t i n g and c l e a n i n g b u i l d i n g s b. improvement of t r a f f i c access c. improvement of parking d. s t r e e t improvements such as p l a n t i n g of t r e e s , p r o v i s i o n of s t r e e t f u r n i t u r e e. r e d e c o r a t i o n of i n t e r i o r s of b u i l d i n g s f. management consultant s e r v i c e f o r business g. c o n t r o l of signs h. p r o v i s i o n of s t r e e t l i g h t i n g i . other (please s p e c i f y ) f. The number of b u i l d i n g u n i t s involved i s . g. The t o t a l cost of r e h a b i l i t a t i o n w i l l be $ ..~) to be shared % by p r i v a t e e n t e r p r i s e % at the munic i p a l l e v e l % at the s t a t e / p r o v i n c i a l l e v e l % at the Federal l e v e l h. W i l l the b u i l d i n g s to be r e h a b i l i t a t e d be acquired by p u b l i c money then e i t h e r leased or s o l d back to p r i v a t e business? 114 Comments: 3. O r i g i n a l i n s p i r a t i o n f o r t h i s p r o j e c t came from: p r i v a t e business i n t e r e s t s Chamber of Commerce l o c a l government Other (please s p e c i f y ) b. What c r i t e r i a d i d you use to s e l e c t your r e h a b i l i t a t i o n area? ( i f the s p e c i f i c area was not suggested by one of the above) 4. a. With which part of the r e h a b i l i t a t i o n program have you encountered the most d i f f i c u l t y ? " b. In how many of the commercial u n i t s r e h a b i l i t a t e d has there been or i s there i n d i c a t e d i . a change of use i i . a change of ownership APPENDIX B PLANNING OFFICIALS WHO REPLIED TO LETTERS AND QUESTIONNAIRES CONCERNING COMMERCIAL REHABILITATION PROGRAMS 116 United States Mr. Gordon E. Howard D i r e c t o r O f f i c e of Program Planning Renewal P r o j e c t s A d m i n i s t r a t i o n Department of Housing and Urban Development Washington, D.C. 20410 Mr. John T. Sayers, J r . Senior Development S p e c i a l i s t Downtown Waterfront P r o j e c t Boston Redevelopment A u t h o r i t y Boston, Massachusetts Mr. Thomas C. Hoffman Executive D i r e c t o r E r i e Redevelopment A u t h o r i t y E r i e , Pennsylvania Mr. Leo Wilensky Urban Renewal D i r e c t o r F l i n t , Michigan Mr. Clyde N. Bradley R e h a b i l i t a t i o n O f f i c e r Redevelopment Agency of the C i t y of Fresno Fresno, C a l i f o r n i a Mr. A.E. Cornett Executive D i r e c t o r Johnson C i t y Housing A u t h o r i t y Johnson C i t y , Tennessee Mr. M i c h a e l R. Chitwood Executive D i r e c t o r Land Clearance f o r Redevelopment A u t h o r i t y J o p l i n , M i s s o u r i Mr. George M i l l a r , J r . Executive D i r e c t o r Housing A u t h o r i t y of the C i t y of L i t t l e Rock L i t t l e Rock, Arkansas Mr. Jack D. Leeth Executive D i r e c t o r Urban Renewal and Community Development Agency L o u i s v i l l e , Kentucky Mr. Robert H. McCann A s s i s t a n t D i r e c t o r of Urban Renewal Manchester Housing A u t h o r i t y Manchester, New Hampshire Mr. Samuel Kaplan Downtown Renewal D i r e c t o r New Haven Redevelopment Agency New Haven, Connecticut Mr. James T. Y i e l d i n g Oklahoma C i t y Urban Renewal A u t h o r i t y Oklahoma C i t y , Oklahoma Mr. C l i n t o n B. Mullen Redevelopment A u t h o r i t y of the C i t y of P h i l a d e l p h i a P h i l a d e l p h i a , Pennsylvania Miss V i r g i n i a S. West Executive D i r e c t o r Sylacauga Housing A u t h o r i t y Sylacauga, Alabama Mr. Paul D. Chapmen Executive D i r e c t o r Tulsa Urban Renewal A u t h o r i t y T u l s a , Oklahoma Mr. Howard L. Zacks R e h a b i l i t a t i o n Coordinator U t i c a Urban Renewal Agency U t i c a , New York Mr. Leon E. Case, J r . Redevelopment A u t h o r i t y of the C i t y of Wilkes-Barre Executive D i r e c t o r W i lkes-Barre, Pennsylvania 117 Canada Mr. T.P. M o r r i s Branch A r c h i t e c t and Planner C e n t r a l Mortgage and Housing Corporation Vancouver O f f i c e Vancouver, B.C. Mr. A.G. M a r t i n D i r e c t o r of Planning C i t y of Calgary, A l b e r t a Mr. S.C. Rodgers Ch i e f Planner The C i t y of Edmonton Edmonton, A l b e r t a Mr. R.B. Grant Development O f f i c e r C i t y of H a l i f a x H a l i f a x , Nova S c o t i a Mr. N.S. S i b b i c k A s s i s t a n t Planner O a k v i l l e Planning Board O a k v i l l e , Ontario Mr. W.F. Manthorpe Commissioner of Development Development Department C i t y of Toronto Toronto, Ontario Mr. Ernest L a n g l o i s Super i n t endent Urban Renewal D i v i s i o n C i t y Planning Department C i t y of Montreal Montreal, Quebec APPENDIX C REDEVELOPMENT AUTHORITY OF THE CITY OF ERIE 405 MUNICIPAL BUILDING ERIE, PENNSYLVANIA DOWNTOWN ERIE URBAN RENEWAL PROJECT HHFA-URA PROJECT NO. PENNA. R-136 PA. DEPT. OF COMMERCE PROJECT NO. R-159 REHABILITATION REQUIREMENTS f o r 926-932 PEACH STREET - LPA PARCEL NO. 30-13 119 S p e c i f i c R e h a b i l i t a t i o n Requirements f o r 926-932 Peach S t r e e t , LPA P a r c e l No. 30-13 I . O b j e c t i v e : To provide, through r e h a b i l i t a t i o n , a s a f e , s t r u c t u r a l l y sound, mechanically and e l e c t r i c a l l y e f f i c i e n t , proper c i r c u l a t i n g b u i l d i n g o p e r a t i o n , and a u n i f i e d , a e s t h e t i c a l l y a t t r a c t i v e e x t e r i o r and i n t e r i o r image which w i l l blend harmoniously w i t h the design o b j e c t i v e s of E r i e ' s new and rejuvenated Downtown. I I . S p e c i f i c R e h a b i l i t a t i o n Requirements: * 1. S t r u c t u r a l and General C o n s t r u c t i o n a. B u i l d i n g i s i n F i r e D i s t r i c t No. 1 and minimum allowable c o n s t r u c t i o n " i s Type 3-B. (1) A l l wood framed e x t e r i o r w a l l s - ( i n c l u d i n g those i n l i g h t and v e n t i l a t i o n courts) must be r e p l a c e d w i t h non-combustible masonry c o n s t r u c t i o n . (2) A l l wood f l o o r s t r u c t u r e and f l o o r framing throughout the b u i l d i n g must be f i r e p r o o f e d by an approved means which w i l l provide the r e q u i r e d f i r e - r e s i s t a n c e r a t i n g of 3/4 hour. (3) A l l wood framed i n t e r i o r bearing w a l l s and p a r t i t i o n s must be f i r e - p r o o f e d to provide the r e q u i r e d f i r e -r e s i s t a n c e r a t i n g of 3/4 hour. (4) A l l f i r e w a l l s and f i r e d i v i s i o n s must have a f i r e -r e s i s t a n c e r a t i n g of 3 hours. (a) F i r e w a l l between 926 and 928 Peach S t r e e t has been broken through and an alcove formed w i t h i l l e g a l c o n s t r u c t i o n . (5) A l l wood roof s t r u c t u r e must be protected by m a t e r i a l s p r o v i d i n g a f i r e - r e s i s t a n c e r a t i n g of 3/4 hour. (6) A t t i c space over second f l o o r apartment area i s badly d e t e r i o r a t e d , g e n e r a l l y u s e l e s s and c o n s t i t u t e s a f i r e hazard. This c o n s t r u c t i o n should be removed and new roof c o n s t r u c t i o n ( i n accordance w i t h the codes) at the second f l o o r c e i l i n g l e v e l . 120 b. 930 Peach S t r e e t s e c t i o n occupied by Thayer McNeil has an opening i n a masonry w a l l between the showroom area and stock area, w i t h p l a s t e r cracks at the l i n t e l area. I n v e s t i g a t i o n should be made t o determine cause (weakened l i n t e l or improper or mi s s i n g p l a s t e r r e i n f o r c i n g ) and r e p a i r e d as r e q u i r e d . c. F i r s t and second f l o o r s : wood f l o o r s t r u c t u r e s are sagging badly and are d e t e r i o r a t e d beyond proper load-bearing c a p a c i t y ; j o i s t bearing ends are r o t t e d out i n some areas. E x i s t i n g wood f l o o r s t r u c t u r e s should be replac e d w i t h minimum Type 3-B c o n s t r u c t i o n as per the c i t y code. d. E x t e r i o r b r i c k has been t r e a t e d u n s u c c e s s f u l l y w i t h a water-proofing type p a i n t t o e l i m i n a t e the cause of i n t e r i o r water damage. Major cause of water damage would appear to be through i n v e s t i g a t i o n as f o l l o w s : (1) D e t e r i o r a t e d r o o f i n g . (2) D e t e r i o r a t e d and improper f l a s h i n g . (3) Inadequately s i z e d or p a r t i a l l y plugged roof d r a i n s and conductors. (4) Areas of roof (such as l i g h t and v e n t i l a t i o n w e l l s ) which have no d r a i n s and act as water r e s e r v o i r s , depending on evaporation and absorption i n t o the b u i l d i n g f o r water removal. e. Wood sash and t r i m show minor d e t e r i o r a t i o n ; should be cleaned and p a i n t e d , w i t h r e p a i r and/or replacement of members as r e q u i r e d . 2. Egress a. A l l stairways w i t h i n the b u i l d i n g are i n v i o l a t i o n of both the C i t y and State codes and must be replaced or r e v i s e d i n accordance w i t h the codes. b. C i r c u l a t i o n w i t h i n the b u i l d i n g must be r e v i s e d i n order to provide the proper number of e x i t s and access t h e r e t o . (1) I n d i v i d u a l shops and s t o r e s , w i t h i n the b u i l d i n g and which are not interconnected, are req u i r e d by C i t y and State codes to have two (2) e x i t s reasonably remote from one another. 121 3. F i r e Alarm; and F i r e P r o t e c t i v e Systems a. No f i r e alarm system i s r e q u i r e d f o r t h i s p a r t i c u l a r b u i l d i n g . b. F i r e p r o t e c t i o n equipment i n the form of an automatic s p r i n k l e r system w i l l be r e q u i r e d i n the-basement, and the remainder of the b u i l d i n g s h a l l be f u r n i s h e d w i t h f i r e p r o t e c t i v e equipment and e x t i n g u i s h e r s , a l l as r e q u i r e d by State and C i t y codes. 4. Emergency L i g h t i n g Equipment a. Emergency l i g h t i n g f o r e x i t s , s t a i r s , e t c . must be provided as r e q u i r e d by the State and C i t y codes. 5. Plumbing a. Plumbing i s adequate and s e r v i c e a b l e g e n e r a l l y , although d e t e r i o r a t i o n due to age i s s e t t i n g i n . System should be thoroughly checked f o r replacements and r e p a i r s r e q u i r e d . 6. Heating, V e n t i l a t i n g and A i r C o n d i t i o n i n g a. Heating i s by means of metered " C i t y Steam" w i t h manually c o n t r o l l e d cast i r o n r a d i a t o r s . Although the system design i s an obsolete type, heating of the b u i l d i n g i s adequate, but f a r from i d e a l . b. Bathrooms and t o i l e t rooms are inadequately v e n t i l a t e d and a p o s i t i v e mechanical system should be i n s t a l l e d . c. E x i s t i n g a i r c o n d i t i o n i n g u n i t s are window type - see "Non-Residential R e h a b i l i t a t i o n Requirements" excerpt from the Urban Renewal P l a n . 7. E l e c t r i c a l (See a l s o Paragraph 4 - "Emergency L i g h t i n g System") a. E l e c t r i c a l s e r v i c e i s adequate and g e n e r a l l y i n good c o n d i t i o n . b. Extensive amount of the d i s t r i b u t i o n system i s obsolete and d e t e r i o r a t i n g ; w i t h f r a y i n g and i l l e g a l s p l i c e s i n evidence. A l l such w i r i n g should be r e p l a c e d . 122 c. L i g h t i n g i n s t a i r s and c o r r i d o r s i s inadequate and should be brought up to I l l u m i n a t i n g Engineers S o c i e t y standards. d. Convenience and u t i l i t y o u t l e t s are inadequate i n number and should be supplemented - r a t i o should be 1 t o 72 square feet of f l o o r area. 8. I n t e r i o r M a t e r i a l s and F i n i s h e s a. F i r s t f l o o r has s e v e r a l areas r e q u i r i n g patching and p a i n t i n g . b. Second f l o o r throughout and e s p e c i a l l y i n p r e s e n t l y unused p o r t i o n s , needs extensive patching and p a i n t i n g . c. F l o o r s ( f i r s t and second) - see Paragraph 1 - " S t r u c t u r a l and General C o n s t r u c t i o n " d. E l i m i n a t i o n of water damage causes - see Paragraph 1 -" S t r u c t u r a l and General C o n s t r u c t i o n " NOTE "A" Codes r e f e r r e d to h e r e i n are as f o l l o w s : 1. C i t y of E r i e B u i l d i n g Code 2. C i t y of E r i e Plumbing Code 3. N a t i o n a l E l e c t r i c Code 4. F i r e Prevention Code - N a t i o n a l Board of F i r e Underwriters 5. C i t y and County of E r i e Department of Health and S a n i t a t i o n 6. Pennsylvania Department of Labor and Industry Regulations f o r P r o t e c t i o n from F i r e and Panic NOTE "B" I f f u r t h e r e x p l a n a t i o n , guidance, or d i s c u s s i o n i s d e s i r e d , Redevelopment A u t h o r i t y s t a f f w i l l be a v a i l a b l e . APPENDIX D CENTRAL BUSINESS DISTRICT URBAN RENEWAL AREA PROJECT ALA R-75 ATTACHMENT NO. 1 TO THE URBAN RENEWAL PLAN SUGGESTED PROPERTY REHABILITATION STANDARDS SYLACAUGA, ALABAMA 124 NON-RESIDENTIAL PROPERTY REHABILITATION STANDARDS PART 1 INTRODUCTION O b j e c t i v e : The o b j e c t i v e of these property r e h a b i l i t a t i o n standards i s to provide a p r a c t i c a l b a s i s f o r cooperative e f f o r t s on the part of property owners, the m u n i c i p a l government, and the housing a u t h o r i t y , i n a c h i e v i n g a maximum degree of s t r u c t u r a l improvement, u n i f o r m i t y of design, s e r v i c e f a c i l i t i e s , landscaping and general amenities w i t h i n the boundaries of the subject p r o j e c t area. These Property R e h a b i l i t a t i o n Standards s h a l l apply to a l l p r o p e r t i e s w i t h i n the conservation s e c t i o n of the p r o j e c t area. Where reference i s made to e x i s t i n g Codes and Ordinances, the f o l l o w i n g s h a l l apply: N a t i o n a l E l e c t r i c a l Code, 1965 E d i t i o n , Adopted August 16, 1966 F i r e Prevention Code, 1965 E d i t i o n , Adopted August 16, 1966 Southern Standard Gas Code, 1965 E d i t i o n , Adopted August 16, 1966 Southern Standard B u i l d i n g Code, Part I I I , Plumbing, 1962-63 E d i t i o n , Adopted J u l y 2, 1963 Amendments to Southern Standard B u i l d i n g Code, Part I I I , Plumbing, 1965 R e v i s i o n to 1962-63 E d i t i o n , Adopted-August 16, 1966 Southern Standard B u i l d i n g Code, 1965 E d i t i o n , Adopted October 4, 1965 Southern Standard Housing Code, 1965 E d i t i o n , Adopted October 4, 1965 Part I I of these standards are the mandatory requirements as incorporated i n the Urban Renewal Plan and adopted by the c i t y . These standards i n part I I r e f e r to e x i s t i n g codes and ordinances of the c i t y and are supplemented by a d d i t i o n a l standards p e r t a i n i n g to the h e a l t h , s a f e t y , and welfare of those p r o p e r t i e s w i t h i n the urban renewal area. Part I I I of the General Improvement Standards p e r t a i n e s s e n t i a l l y to the improvements to be provided by property owners and tenants to upgrade t h e i r b u i l d i n g s f o r the purpose of p r o v i d i n g b e t t e r appearance, convenience, and a c c e s s i b i l i t y f o r customers, and an improved business climate f o r the p r o j e c t area. Both part I I and part I I I have been reviewed by the committee of owners and tenants i n the p r o j e c t and are considered e s s e n t i a l to the s u c c e s s f u l execution of the o v e r a l l p lan f o r the C e n t r a l Business D i s t r i c t . 125 Part IV of these standards contains s i g n r e g u l a t i o n s to be enforced w i t h i n the p r o j e c t area. Part V of these standards e s t a b l i s h e s a Design Review Board which s h a l l advise and a s s i s t the Conservation O f f i c e r i n c a r r y i n g out the conservation program. PART I I MANDATORY REQUIREMENTS A. Codes and Ordinances Where the l o c a l code, r e g u l a t i o n or requirements permits lower standards than r e q u i r e d h e r e i n , these Minimum Property Standards s h a l l apply. B. B u i l d i n g Requirements (1) S t r u c t u r a l - A l l s t r u c t u r a l components of the b u i l d i n g s h a l l be i n sound c o n d i t i o n and considered s e r v i c e a b l e f o r the expected u s e f u l l i f e of the r e h a b i l i t a t e d b u i l d i n g . (2) W a l l s -(a) E x t e r i o r w a l l s s h a l l provide safe and adequate support f o r a l l loads upon them. Masonry w a l l s , e i t h e r s o l i d or veneer, s h a l l prevent the entrance of water or excessive moisture. (b) P a r t y or l o t l i n e w a l l s s h a l l be of incombustible m a t e r i a l s and s h a l l extend the f u l l height of the b u i l d i n g from foundation to or through the r o o f . The w a l l s h a l l e f f e c t i v e l y prevent the passage of f i r e at a l l f l o o r c e i l i n g i n t e r s e c t i o n s w i t h the w a l l . The f i r e r e s i s t a n c e r a t i n g of the w a l l , where i t i s new c o n s t r u c t i o n i n connection w i t h present r e h a b i l i t a -t i o n s h a l l be not l e s s than 2-hours, except as otherwise r e q u i r e d by the p r e v a i l i n g code. Any openings through party w a l l s s h a l l be protected by c l o s u r e s , as r e q u i r e d by the w a l l i n accordance w i t h the a p p l i c a b l e code. (c) E x t e r i o r basement and foundation w a l l s s h a l l prevent the entrance of water or moisture i n t o a basement or crawl space area. Cracks i n the w a l l s s h a l l be e f f e c t i v e l y sealed, and loose or d e f e c t i v e mortar j o i n t s s h a l l be re p l a c e d . Where necessary, the i n t e r i o r or e x t e r i o r face of the w a l l s s h a l l be dampproofed by bituminous c o a t i n g and cement p a r g e t i n g . 126 (3) Roofs and Moisture P r o t e c t i o n (a) A l l roofs s h a l l have a s u i t a b l e covering f r e e of h o l e s , cracks or e x c e s s i v e l y worn surfaces which w i l l prevent the entrance of moisture i n t o the s t r u c t u r e and provide reasonable d u r a b i l i t y . (b) A l l c r i t i c a l j o i n t s i n e x t e r i o r roof and w a l l c o n s t r u c t i o n s h a l l be protected by sheet metal or other s u i t a b l e f l a s h i n g m a t e r i a l to prevent the entrance of water. (c) Each b u i l d i n g s h a l l have a c o n t r o l l e d method of d i s p o s a l of water from r o o f s where necessary to prevent damage to the property, and avoid causing an u n s i g h t l y appearance of w a l l s and windows where adequate roof overhangs are not provided. (d) Any d e f i c i e n c i e s i n proper grading or paving adjacent to the b u i l d i n g s h a l l be c o r r e c t e d to assure surface drainage away from b u i l d i n g . (4) F i n i s h e s - The e x t e r i o r and i n t e r i o r f i n i s h e s of the b u i l d i n g should assure against the entrance or p e n e t r a t i o n of moisture and extremes of temperature; p r o t e c t from damage by decay, c o r r o s i o n , i n s e c t s and other d e s t r u c t i v e elements by appropriate means, and provide reasonable d u r a b i l i t y and economy of maintenance. (5) Stairways - E x i s t i n g stairways i n sound c o n d i t i o n to remain, or to be r e p a i r e d , s h a l l not be dangerously or to any serious extent below minimum code standards as to r i s e and run of steps, headroom, o b s t r u c t i o n s , s t a i r w i d t h , landings, or r a i l i n g pro-t e c t i o n . Stairways provided f o r the p u b l i c s h a l l conform to code standards. (6) V e n t i l a t i o n of S t r u c t u r a l Spaces - N a t u r a l v e n t i l a t i o n of spaces such as a t t i c s and enclosed basementless spaces s h a l l be pro-vided by appropriate preventive measures to overcome dampness and minimize the e f f e c t of c o n d i t i o n s conducive to decay and d e t e r i o r a t i o n of the s t r u c t u r e , and to prevent excessive heat i n a t t i c s . (7) I n f e s t a t i o n - Each b u i l d i n g and a l l e x t e r i o r appurtenances on the premises s h a l l be adequately protected against rodents, t e r m i t e s or other vermin i n f e s t a t i o n . An e x i s t i n g b u i l d i n g where found to have defects which w i l l permit the entrance i n t o the s t r u c t u r e of rodents, t e r m i t e s or other vermin s h a l l be c o r r e c t e d by appropriate preventive measures. 127 (8) Mechanical (a) Heating - Each property s h a l l be provided w i t h a c e n t r a l i z e d h e a t i n g f a c i l i t y , or appropriate and s u f f i c i e n t i n d i v i d u a l space heaters, capable of m a i n t a i n i n g a temperature of at l e a s t 70 degrees F. when the outside temperature i s at the design temperature, i n a l l p u b l i c spaces. A l l h e a t i n g devices or equipment s h a l l have an appropriate recognized approval f o r s a f e t y and performance, or s h a l l be so determined by proper a u t h o r i t y . A l l heaters except e l e c t r i c heaters s h a l l be vented. (b) E l e c t r i c a l - A l l appropriate spaces i n each b u i l d i n g s h a l l be provided w i t h e l e c t r i c s e r v i c e by a system of w i r i n g and equipment to s a f e l y supply e l e c t r i c a l energy f o r proper i l l u m i n a t i o n and f o r the appropriate l o c a t i o n and use of appliances or other equipment. I n s t a l l a t i o n of new, w i r i n g and replacement of f a u l t y w i r i n g s h a l l be i n conformance w i t h E l e c t r i c a l Code. (c) Plumbing - The plumbing system and i t s appurtenances f o r each b u i l d i n g s h a l l provide s a t i s f a c t o r y water supply, drainage, v e n t i n g , and operation of f i x t u r e s . (d) Chimneys and Vents - Chimneys and vents s h a l l be s t r u c t u r a l l y s a f e , durable, smoketight and capable of wi t h s t a n d i n g the a c t i o n of f l u e gases. (e) V e n t i l a t i o n of U t i l i t y Spaces - U t i l i t y spaces which con-t a i n heat producing, a i r c o n d i t i o n i n g and other equipment s h a l l be v e n t i l a t e d to the outer a i r , and a i r from such spaces s h a l l not be r e c i r c u l a t e d to other p a r t s of the b u i l d i n g . ( f ) V e n t i l a t i o n of T o i l e t Spaces - Every t o i l e t room s h a l l have windows p r o v i d i n g i n no case l e s s than three (3) sq. f t . of open space, or s h a l l have approved, equivalent mechanical v e n t i l a t i o n , exhausting outside the b u i l d i n g . Where v e n t i -l a t i o n i s provided by mechanical means, l a v a t o r i e s , t o i l e t s , bathrooms, and r e s t rooms s h a l l be provided w i t h at l e a s t two (2) cubic f e e t of f r e s h a i r per minute per square foot of f l o o r area. C. Egress and F i r e P r o t e c t i o n No exception to a p p l i c a b l e codes permitted. 128 D. S a n i t a r y F a c i l i t i e s Each commercial u n i t s h a l l have at l e a s t one f u l l y enclosed t o i l e t room with at l e a s t one water c l o s e t and one l a v a t o r y . PART I I I GENERAL IMPROVEMENT STANDARDS Planning A s s i s t a n c e w i l l be provided by the housing a u t h o r i t y as f o l l o w s A. I n s p e c t i o n - Each property w i l l be inspected by the Sylacauga Housing A u t h o r i t y to determine i t s conformance w i t h these standards and a l i s t of d e f i c i e n c i e s w i l l be provided to the owner. B. F i n a n c i a l - A f i n a n c i a l a d v i s o r w i l l be r e t a i n e d as needed by the Sylacauga Housing A u t h o r i t y to di s c u s s problems of f i n a n c i n g the necessary improvements to p r o p e r t i e s . A complete f i l e of a p p l i c a -t i o n forms and i n f o r m a t i o n a l l i t e r a t u r e of government agencies such as SBA and FHA w i l l be provided, and a l i s t of len d i n g i n s t i t u t i o n s w i l l i n g to lend money i n the p r o j e c t w i l l be maintained. C. C o n t r a c t i n g - A l i s t of q u a l i f i e d c o n t r a c t o r s , i n t e r e s t e d i n doing work i n the p r o j e c t w i l l be maintained and a follow-up w i l l be made by the Sylacauga Housing A u t h o r i t y of any complaints by owners of workmanship and p r i c e s . D. A r c h i t e c t u r a l - A p r o j e c t a r c h i t e c t w i l l be r e t a i n e d by the Sylacauga Housing A u t h o r i t y to advise owners and the Design Review Board upon the e x t e r i o r appearance and the general extent of remodeling d e s i r a b l e to b r i n g the property up to a l a s t i n g standard of q u a l i t y and a e s t h e t i c appeal. This advice w i l l be l i m i t e d to p r e l i m i n a r y p l a n s . No working drawings or s p e c i f i c a t i o n s w i l l be provided as a p r o j e c t s e r v i c e . Owners who need f u r t h e r development of p r e l i m i n a r y plans f o r c o n s t r u c t i o n purposes w i l l be expected to secure these s e r v i c e s at t h e i r own expense. B u i l d i n g s and Grounds - The f o l l o w i n g p r o v i s i o n s apply to a l l p r o p e r t i e s i n the p r o j e c t area and are intended to provide the b a s i s f o r the improvement of b u i l d i n g s t o a higher standard of appearance and con-venience than would be p o s s i b l e under e x i s t i n g codes- and ordinances. A. S i t e Improvements -Walks and steps s h a l l be provided f o r convenient a l l weather access to the s t r u c t u r e constructed so as t o provide s a f e t y , reasonable d u r a b i l i t y , economy of maintenance and p l e a s i n g appearance. 129 (2) The open space of each property should provide (a) f o r the immediate d i v e r s i o n of water away from b u i l d i n g s and d i s p o s a l from the l o t , (b) prevent s o i l s a t u r a t i o n d e t r i m e n t a l to s t r u c t u r e s and l o t use, and (c) where needed, appropriate paved walks, parking areas, driveways, e x t e r i o r steps, p l a n t i n g of t r e e s , shrubs and herbaceous m a t e r i a l s , s t a t u a r y , d r i n k i n g f o u n t a i n s , s h e l t e r s benches and other a r c h i t e c t u r a l and landscape a r c h i t e c t u r a l f e a t u r e s . Contract drawings f o r landscape a r c h i t e c t u r a l treatment proposed as p r o j e c t improvements s h a l l be prepared by a q u a l i f i e d landscape a r c h i t e c t whose s e r v i c e s s h a l l be r e t a i n e d on a c o n s u l t i n g b a s i s during the e n t i r e p e r i o d of p r o j e c t development. (3) A l l e x t e r i o r appurtenances or accessory s t r u c t u r e s which serve no u s e f u l purpose, or those i n a d e t e r i o r a t e d c o n d i t i o n which are not economically r e p a i r a b l e , s h a l l be removed. Such s t r u c t u r e s i n c l u d e porches, t e r r a c e s , marquees, s i g n s , entrance p l a t f o r m s , garages, c a r p o r t s , w a l l s , fences, miscellaneous sheds. Where a s t r u c t u r e i s needed f o r u t i l i t y or p r i v a c y and the e x i s t i n g one r e q u i r e s removal, i t s h a l l be replaced w i t h a s t r u c t u r e that a p p r o p r i a t e l y serves the b u i l d i n g . B. B u i l d i n g Improvements -(1) M a t e r i a l s - Every b u i l d i n g s h a l l be constructed of m a t e r i a l s of such kind and q u a l i t y which w i l l provide: (a) appropriate s t r u c t u r a l s t r e n g t h , and p l e a s i n g appearance, (b) adequate r e s i s t a n c e to weather and moisture, and (c) reasonable d u r a b i l i t y and economy of maintenance. (2) Windows and Doors - E x i s t i n g windows and doors, i n c l u d i n g i t s hardware, should operate s a t i s f a c t o r i l y and give evidence of c o n t i n u i n g acceptable s e r v i c e . (3) E x t e r i o r W a l l s - Repairs to e x i s t i n g s i d i n g , stucco, or other e x t e r i o r w a l l f i n i s h method should use standards f o r new work as a guide. 130 (4) I n t e r i o r W a l l s and C e i l i n g s - A l l i n t e r i o r w a l l s and c e i l i n g s of rooms and hallways should provide (a) a s u i t a b l e base f o r d e c o r a t i v e f i n i s h , (b) a waterproof and hard surface i n spaces subject to moisture, and (c) There s h a l l not be n o t i c e a b l e surface i r r e g u l a r i t i e s or c r a c k i n g . (5) F l o o r s - F i n i s h f l o o r s should be appropriate f o r the use of . the space and provide reasonable d u r a b i l i t y and economy of maintenance. (6) E l e v a t o r s - Where provided, an e l e v a t o r should f u r n i s h con-venient and safe ascent and descent t o a l l p u b l i c spaces and s e r v i c e areas. The character and type of e l e v a t o r s e r v i c e and equipment s h a l l be appropriate to the b u i l d i n g being r e h a b i l i t a t e d and to i t s occupants and conform to Chapter XXIV of Southern Standard B u i l d i n g Code, 1965 E d i t i o n . (7) L i g h t - Adequate a r t i f i c i a l l i g h t s h a l l be provided f o r a l l p u b l i c spaces. L i g h t sources s h a l l to the maximum extent be concealed, ( l i g h t shelves, recessed f l o o d s , e t c . ) (8) V e n t i l a t i o n - Windows or v e n t i l a t o r s s h a l l be provided of such s i z e that the aggregate area thereof w i l l be not l e s s than 4 percent of f l o o r area or adequate mechanical v e n t i l a t i o n s h a l l be provided to a l l p u b l i c spaces. C. A d d i t i o n a l Requirements (1) T o i l e t Rooms - Each commercial u n i t s h a l l provide t o i l e t rooms f o r employees as f o l l o w s : (a) One t o i l e t room up to 6 employees, (b) One t o i l e t room f o r each sex w i t h one water c l o s e t per 15 employees f o r establishments of more than 6 employees. (c) Each t o i l e t room s h a l l c o n t a i n the f o l l o w i n g : 1) impervious f l o o r surface m a t e r i a l , 2) m i r r o r and l i g h t , 131 3) paper towel dispenser, soap and waste r e c e p t a c l e , 4) garment hook. (2) Surface treatment - Where p a i n t i n g i s not appropriate to the w a l l m a t e r i a l s such as b r i c k or stone these surfaces should be cleaned or sandblasted, r e p o i n t e d , and waterproofed w i t h appropriate m a t e r i a l s . (3) C o n t i n u i t y and u n i f o r m i t y of design and c o l o r schemes -Adv i s o r y s e r v i c e s of the p r o j e c t a r c h i t e c t , c o l o r c o n s u l t a n t , and Design Review Board s h a l l i n c l u d e sketches and suggestions f o r use of g r i l l e s , screens or other s u i t a b l e methods of concealing and/or c o o r d i n a t i n g treatment of obsolete design and m a t e r i a l s of b u i l d i n g facades to present harmonious s t r e e t scenes. This s h a l l i n c l u d e the s e l e c t i o n of b a s i c c o l o r s and c o l o r combinations and recommendations f o r c o l o r combinations i n each block or p o r t i o n of b l o c k s . F u l l c o n s i d e r a t i o n s h a l l be given to the type of screens or other treatment of b u i l d i n g facades and to adopted c o l o r schemes i n the design and s t r u c t u r a l s p e c i f i c a t i o n s f o r canopies, m a l l or sidewalk s h e l t e r s , and other a r c h i t e c t u r a l f a c i l i t i e s to be provided at p r o j e c t or p u b l i c expense. (4) Color treatment - Color scheme s h a l l be submitted to the Design Review Board and P r o j e c t A r c h i t e c t f o r review and determination of conformity to o v e r a l l o b j e c t i v e s r e f e r r e d to i n preceding paragraph. (5) Rear Facades - Where the re a r and side w a l l s of e x i s t i n g b u i l d i n g s become exposed to parking l o t s and other uses i n the i n t e r i o r of a block , the exposed w a l l s s h a l l be r e f u r b i s h e d to present a f i n i s h e d appearance. Where f e a s i b l e , r e a r entrances and d i s p l a y s t o shops from parking areas should be provided. PART IV SIGN CONTROLS Scope The f o l l o w i n g r e g u l a t i o n s s h a l l apply to a l l signs w i t h i n the p r o j e c t area and/or adopted as a part of the Urban Renewal P l a n . 132 B. D e f i n i t i o n S i g n : Any d i s p l a y of c h a r a c t e r s , l e t t e r s , i l l u s t r a t i o n s , ornaments of adjuncts thereto designed to c a l l a t t e n t i o n or to i n d i c a t e the name, use or kind of establishment and/or used as an announcement to promote the i n t e r e s t of any one or more persons or to i n d i c a t e d i r e c t i o n or d i r e c t i o n s . C. General P r o v i s i o n s (1) B u i l d i n g Permit - A b u i l d i n g permit s h a l l be r e q u i r e d f o r e r e c t i o n , a l t e r a t i o n , r e l o c a t i o n or r e c o n s t r u c t i o n of any s i g n unless otherwise h e r e i n set f o r t h and to be issued by the b u i l d i n g o f f i c i a l so designated i n accordance w i t h the a p p l i c a b l e l o c a l Laws and Codes. (2) M a t e r i a l s - Signs must be constructed of durable m a t e r i a l maintained i n good c o n d i t i o n and not permitted to become d i l a p i d a t e d . (3) Sign Area - The area of a s i g n i s the area of the face of a sig n formed by a perimeter c o n s i s t i n g of a s e r i e s of s t r a i g h t l i n e s e n c l o s i n g a l l p a r t s of the s i g n . The area of a f r e e standing s i g n s t r u c t u r e i s the area of face or faces on one side o n l y . (4) I l l u m i n a t e d Signs - Signs s h a l l be i l l u m i n a t e d by back l i g h t i n g or f l o o d l i g h t i n g evenly d i s t r i b u t e d over the s i g n face or background m a t e r i a l and s h a l l be so placed and so s h i e l d e d that rays therefrom or from the s i g n i t s e l f w i l l not present a nuisance to other property owners or a hazard to d r i v i n g automobiles or other v e h i c l e s . (5) Approval - A l l s i g n designs and l o c a t i o n s s h a l l be submitted to the Design Review Board f o r approval p r i o r to c o n s t r u c t i o n or i n s t a l l a t i o n . D. Signs For Which A Permit I s Not Required (1) T r a f f i c , d i r e c t i o n a l , warning or information signs authorized by any p u b l i c agency. (2) O f f i c i a l n o t i c e s issued by any c o u r t , p u b l i c agency or o f f i c e r . (3) One n o n - i l l u m i n a t e d " f o r s a l e " , " f o r r e n t " or " f o r l e a s e " s i g n not exceeding 20 sq. f t . i n area located not l e s s than 10 f t . back from the s t r e e t right-of-way l i n e unless attached to the f r o n t or new facade of a b u i l d i n g . 133 E. Regulations A p p l y i n g t o S p e c i f i c Types of Signs (1) Roof Signs - Roof signs already i n place may remain i n place u n t i l such time as a b u i l d i n g permit becomes necessary under paragraph designated " B u i l d i n g Permit" h e r e i n . (2) W a l l Signs - Signs on the w a l l s of a b u i l d i n g ( i n c l u d i n g signs attached f l a t against the w a l l , painted w a l l signs and pro-j e c t i n g signs) s h a l l meet the f o l l o w i n g requirements: The t o t a l area of a s i g n on each facade of a b u i l d i n g f r o n t i n g on a p u b l i c area ( s t r e e t , highway or p u b l i c parking area) s h a l l be l i m i t e d to 1 sq. f t . of s i g n area per one foot of l i n e a l frontage f o r each b u i l d i n g facade. F * P r o h i b i t e d Signs (1) Signs I m i t a t i n g Warning S i g n a l s - No s i g n s h a l l d i s p l a y i n t e r m i t t e n t l i g h t s resembling the f l a s h i n g l i g h t c u s tomarily used i n t r a f f i c s i g n a l s or i n p o l i c e , f i r e , ambulance or rescue v e h i c l e s nor s h a l l any s i g n use the words "stop 1", "danger", or any other word phrase, symbol or character i n a manner that might mislead or confuse an automobile or other v e h i c u l a r d r i v e r . (2) Signs W i t h i n S t r e e t or Highway Rights-Of-Way - Except as h e r e i n provided, no s i g n whatsoever, whether temporary or permanent, except t r a f f i c signs and s i g n a l s and i n f o r m a t i o n signs erected by a p u b l i c agency are permitted w i t h i n any s t r e e t or highway right-of-way. (3) Signs Already In Place - Signs already i n place w i t h i n or overhanging s t r e e t or highway rights-of-way may remain i n place u n t i l such time as i t becomes necessary to o b t a i n a b u i l d i n g permit f o r work as set f o r t h under paragraph designated " B u i l d i n g Permit" h e r e i n , except that signs p r e s e n t l y i n place extending past the s t r e e t curb l i n e s h a l l be r e l o c a t e d without b u i l d i n g permit to extend not c l o s e r than 18 i n . to a v e r t i c a l plane at the s t r e e t curb l i n e . (4) C e r t a i n Attached and Painted Signs - Signs painted on or attached to t r e e s , fence p o s t s , and u t i l i t y poles or signs painted on or attached t o rocks or other n a t u r a l f e a t u r e s or painted on the r o o f s of b u i l d i n g s are p r o h i b i t e d except a i r d i r e c t i o n a l signs v i s i b l e only from overhead. 134 (5) F l u t t e r i n g Ribbons and Banners - F l u t t e r i n g ribbons and banners and s i m i l a r devices are p r o h i b i t e d , except the f l a g s of governments and t h e i r agencies. G. P r o j e c t i n g Signs (1) W a l l signs attached f l a t , against a w a l l may not extend more than 10 i n . from the w a l l . Background m a t e r i a l other than w a l l of a b u i l d i n g s h a l l be counted i n the area of a s i g n . (2) Signs attached at any angle at a w a l l may extend outside the w a l l of a b u i l d i n g not more than 5 f t . and may be located not c l o s e r than 18 i n . to a v e r t i c a l plane at the s t r e e t curb l i n e . In no case s h a l l signs p r o j e c t beyond property l i n e s except that signs may p r o j e c t over p u b l i c sidewalks provided that the minimum height above the grade or sidewalk l e v e l of such sig n s h a l l be no l e s s than 9 f t . (3) A p r o j e c t i n g s i g n may not extend above the main roof l i n e more than 5 f t . (4) Where a perimeter canopy i s i n s t a l l e d each establishment s h a l l provide one s i g n below the canopy which conforms to the format s e l e c t e d by the Design Review Board. H. Free Standing Signs Free standing signs s h a l l be l i m i t e d to one per s t r e e t f r o n t and s h a l l not exceed 30 sq. f t . i n area and 20 f t . i n h e i g h t . Clearance beneath the s i g n s h a l l be at l e a s t 10 f t . No p o r t i o n of the s i g n s h a l l extend c l o s e r to the property l i n e than 5 f t . PART V DESIGN REVIEW BOARD A Design Review Board of three members sele c t e d from names submitted by the Sylacauga Chamber of Commerce s h a l l be appointed by the Mayor and C o u n c i l . This Board s h a l l have the r e s p o n s i b i l i t y of reviewing a l l pro-p o s a l s concerning p u b l i c and p r i v a t e improvements i n the Urban Renewal Area. 135 A l l proposed s t r u c t u r e s , s i g n s , p u b l i c improvements and a l t e r a t i o n s to e x i s t i n g f a c i l i t i e s to be made by property owners, tenants, or p u b l i c bodies s h a l l be reviewed by t h i s Board before work i s s t a r t e d . The P r o j e c t Conservation O f f i c e r , P r o j e c t A r c h i t e c t , the C i t y Engineer and the C i t y B u i l d i n g Inspector s h a l l a s s i s t the Design Review Board i n the execution of i t s r e s p o n s i b i l i t y . P rocessing of proposals s h a l l be the r e s p o n s i b i l i t y of the Sylacauga Housing A u t h o r i t y Conservation O f f i c e r who w i l l review pre-l i m i n a r y proposals to determine the scope and general nature of the p r o p o s a l , and act as General Coordinator to insure that a l l a f f e c t e d c i t y o f f i c i a l s and p r o f e s s i o n a l a d v i s o r s are informed of matters before the Design Review Board. APPENDIX E AGREEMENT BETWEEN CENTRAL MORTGAGE AND HOUSING CORPORATION AND THE CITY OF VICTORIA FOR THE BASTION SQUARE RESTORATION PROJECT PHASE 1 137 THIS AGREEMENT made the 19th day of October 1965, B E T W E E N CENTRAL MORTGAGE AND HOUSING CORPORATION ( h e r e i n a f t e r c a l l e d c tthe Corporation") OF THE FIRST PART: - and -THE CORPORATION OF THE CITY OF VICTORIA ( h e r e i n a f t e r c a l l e d "the M u n i c i p a l i t y " ) OF THE SECOND PART: Whereas the M u n i c i p a l i t y intends to implement an urban renewal scheme i n the B a s t i o n Square area of the C i t y of V i c t o r i a , which scheme has been approved by the Province of B r i t i s h Columbia and i s acceptable to the C o r p o r a t i o n , . . . provided that the scheme may be amended by the M u n i c i p a l i t y from time to time w i t h the consent of the Province of B r i t i s h Columbia and the Corporation; AND WHEREAS the Governor-in-Council pursuant to S e c t i o n 23B of the National^Housing A c t , 1954, has approved entry i n t o an agreement by the Corporation w i t h the M u n i c i p a l i t y to provide _for payment of con-t r i b u t i o n s equal to one-half of the a c t u a l c o s t , as-determined by the Corporation^ of the i n s t a l l a t i o n of m u n i c i p a l s e r v i c e s and works, . . . NOW THEREFORE.THIS INDENTURE WITNESSETH that the p a r t i e s hereto mutually agree as f o l l o w s : 1. (1) The M u n i c i p a l i t y w i l l c o n s t r u c t , i n s t a l l and complete the m u n i c i p a l s e r v i c e s . . . (2) The M u n i c i p a l i t y w i l l c a l l f o r p u b l i c tenders f o r any and a l l p a r t s : o f the s e r v i c i n g to be undertaken pursuant to Clause 1(1). When tenders have closed on any part of the s e r v i c i n g , the M u n i c i p a l i t y i s to submit to the Corporation a summary of a l l tenders r e c e i v e d . The Corporation's p r i o r concurrence to an award w i l l be r e q u i r e d i f : 138 (a) the contract value exceeds the estimate; or (b) i t i s proposed to make the award to other than the lowest tenderer. (3) The M u n i c i p a l i t y s h a l l provide the Corporation w i t h a copy of a l l c o n t r a c t s w i t h respect to the s e r v i c i n g as soon as p o s s i b l e a f t e r c o n t r a c t s are awarded. (4) The M u n i c i p a l i t y , i f i t d e s i r e s to c a r r y out any part of the work i t s e l f , s h a l l submit a tender. 2. (1) The a c t u a l cost of i n s t a l l i n g the muni c i p a l s e r v i c e s and works i n the urban renewal area s h a l l be deemed to i n c l u d e : (a) the cost s of i n s t a l l i n g the v a r i o u s s e r v i c e s and works and commuting the outstanding l o c a l improvement charges as o u t l i n e d i n . . . (b) amounts paid f o r fees and disbursements f o r s o l i c i t o r s , surveyors, a p p r a i s e r s , brokers and other s i m i l a r s e r v i c e s r e q u i r e d f o r the i n s t a l l a t i o n of the m u n i c i p a l works and s e r v i c e s ; (c) such other expenses i n c u r r e d by the M u n i c i p a l i t y or by the Corporation during the i n s t a l l a t i o n of the munic i p a l s e r v i c e s and works as may be approved both by the M u n i c i p a l i t y and the Corporation p r i o r to t h e i r incurrence. (2) The Corporation w i l l pay c o n t r i b u t i o n s to the M u n i c i p a l i t y equal to one-half of the a c t u a l c o s t , as determined by the Corporation, pursuant to subclause (1) above, upon r e c e i p t of statements of account i n accord-ance w i t h Clause 3. 3. (1) The M u n i c i p a l i t y s h a l l i n the f i r s t instance disburse a l l items forming part of the a c t u a l c o s t . (2) Any commitment made by the M u n i c i p a l i t y or the Corporation which d i r e c t l y or i n d i r e c t l y a f f e c t s the a c t u a l cost s h a l l be made only a f t e r the M u n i c i p a l i t y and the Corporation have concurred i n such commitment. (3) Not l e s s f r e q u e n t l y than q u a r t e r l y the M u n i c i p a l i t y s h a l l pre-pare and submit to the Corporation a statement of account supported by such books, records or other data as the Corporation may r e q u i r e , showing: (a) amounts disbursed by the M u n i c i p a l i t y toward the a c t u a l cost of i n s t a l l i n g m u n i c i p a l works and s e r v i c e s ; and (b) amounts r e q u i r e d t o commute l o c a l improvement charges outstanding against l o t s acquired during the p e r i o d covered by the c l a i m . (4) The M u n i c i p a l i t y s h a l l provide to the Corporation such books, records or other data supporting such accounts as the Corporation may from time to time r e q u i r e and the M u n i c i p a l i t y w i l l maintain separate 139 accounts i n respect of the p r o j e c t and w i l l permit the examination, i n s p e c t i o n and audit of such accounts by the Corporation or by a u d i t o r s appointed by i t at a l l reasonable times. 4. The M u n i c i p a l i t y s h a l l r e t a i n a l l documents, vouchers, records and account p e r t a i n i n g to the cost of supplementing and implementing the scheme f o r not l e s s than seven years from the date of completion of the scheme as determined by the p a r t i e s hereto. IN WITNESS WHEREOF the p a r t i e s hereto have hereunto a f f i x e d t h e i r corporate s e a l s as witness the hands of t h e i r proper o f f i c e r s i n that b e h a l f . CENTRAL MORTGAGE AND HOUSING CORPORATION THE CORPORATION OF THE CITY OF VICTORIA APPENDIX F APPLICATION FOR BASTION SQUARE RESTORATION PROJECT PHASE 2 141 Whereas the renewal works f o r B a s t i o n Square which are the subject of an agreement made on the 19th day of October 1965, between C e n t r a l Mortgage and Housing Corporation, and the C i t y of V i c t o r i a are now s u b s t a n t i a l l y complete, and Whereas a prime o b j e c t i v e of the scheme i s to encourage r e s t o r a t i o n and r e h a b i l i t a t i o n of the b u i l d i n g s f r o n t i n g onto the Square and Whereas i t i s e s s e n t i a l to provide v e h i c u l a r and other s e r v i c e access to the b u i l d i n g s to enable them to be used to best advantage and Whereas the C o u n c i l and the Corporation of the C i t y of V i c t o r i a has caused to be prepared an Urban Renewal Scheme f o r the area centred between Yates, Government, Fort and Wharf S t r e e t s , known as B a s t i o n Square . . . Now th e r e f o r e C o u n c i l of the C i t y of V i c t o r i a r e s o l v e s t h a t : 1. The urban renewal proposals to be known as B a s t i o n Square R e s t o r a t i o n P r o j e c t Phase 2, set out i n the accompanying A p p l i c a t i o n be adopted. 2. A p p l i c a t i o n be made to C e n t r a l Mortgage and Housing Corporation pursuant to Sec. 23B of the N a t i o n a l Housing Act 1954, f o r an Agreement p r o v i d i n g f o r the payment of c o n t r i b u t i o n s equal to one h a l f of the a c t u a l cost of c a r r y i n g out the B a s t i o n Square R e s t o r a t i o n P r o j e c t Phase 2. 3. A p p l i c a t i o n be made to the Lieutenant Governor i n Co u n c i l or the M i n i s t e r appointed by him f o r that purpose f o r an agreement pursuant to Sec. 15 of the Housing Act 1960 p r o v i d i n g f o r a grant by the Province to the C i t y equal t o f i f t y percentum of the amount of the grant agreed to be paid to the C i t y of V i c t o r i a by the M i n i s t e r of Labour f o r Canada f o r the purpose of c a r r y i n g out the B a s t i o n Square R e s t o r a t i o n P r o j e c t Phase 2. 4. The proper o f f i c e r s of the C i t y be authorized to negotia t e the terms of the Agreements w i t h C e n t r a l Mortgage and Housing Corporation and the Province p r o v i d i n g f o r the c o n t r i b u t i o n s and payments as a f o r e s a i d . BIBLIOGRAPHY BIBLIOGRAPHY P u b l i c Documents B r i t i s h Columbia, Province o f . M u n i c i p a l A c t . V i c t o r i a : A. Sutton, P r i n t e r t o the Queen, 1964. Canada. 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