Guidelines for Implementing a Pilot Pedestrian Mall on

Government Street, Victoria

Guidelines for Implementing a Pilot Pedestrian Mall on

Government Street, Victoria

2012

Andrew Denhoff

Averlee Howie

Jennifer Comrie

Jennifer Marr

Sarah Marshall

ES 405

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CONTENTS Addressing the Community Energy and Emissions Plan ........................................................................................ 4

Rationale ..................................................................................................................................................................................... 5

Current State ............................................................................................................................................................................. 6

Moving Forward ....................................................................................................................................................................... 7

Why Push Further? ............................................................................................................................................................ 7

Framework for Pilot Project ............................................................................................................................................... 8

1. Temporarily close Government Street during key summer months ...................................................... 8

2. Launch the pilot project in conjunction with a special event ...................................................................... 8

3. Area covered by Pedestrian Mall ............................................................................................................................. 9

4. Time parameters for closure: week and weekend hours .......................................................................... 10

Further Considerations ....................................................................................................................................................... 11

1. Additional business licenses and permits along the Government Street Pedestrian Mall ....... 11

2. Project Coordinator ................................................................................................................................................ 11

3. Design .......................................................................................................................................................................... 12

4. Lost Parking Spots .................................................................................................................................................. 12

5. Economic Cost .......................................................................................................................................................... 12

6. Fincancial Sustainability ...................................................................................................................................... 13

7. Other Key Stakeholders ........................................................................................................................................ 13

8. Opportunities for Growth .................................................................................................................................... 13

9. Informing Drivers ................................................................................................................................................... 14

Business Engagement .......................................................................................................................................................... 15

Monitoring and Evaluation ................................................................................................................................................ 16

Public Monitoring and Evaluation ............................................................................................................................. 16

Business Evaluation ......................................................................................................................................................... 16

Conclusion ................................................................................................................................................................................ 17

References ................................................................................................................................................................................ 18

APPENDIX A Two examples of successful pedestrian malls ........................................................................... 19

APPENDIX B Summary of Interview with John Vickers, Victoria International Buskers Festival .. 21

APPENDIX C Summary of Interview with Mike Hill, City of Victoria ......................................................... 22

APPENDIX D Summary of Interview with Ken Kelly, DVBA ........................................................................... 23

APPENDIX E Roles and Responsibilities for Pilot Project Coordinator ...................................................... 24

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APPENDIX F Sample Communications Letter for Businesses on Government Street ........................ 25

APPENDIX G Sample Feedback Form for Businesses ........................................................................................ 26

APPENDIX H Sample Evaluation Surveys ............................................................................................................... 28

APPENDIX I Sample Project Evaluation Matrix ................................................................................................... 29

APPENDIX J Article, Times Colonist, “Pedestrian Mall Offers Hint of a Better Downtown” .............. 30

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ADDRESSING THE COMMUNITY ENERGY AND EMISSIONS PLAN

The intent of implementing a seasonal pilot closure of Government Street in Victoria, B.C. for a pedestrian mall is to enhance walkability in the downtown. This goal is in relation to the following recommended actions outlined in the City of Victoria’s Community Energy and Emissions Plan (CEEP):

(5.2.4) Use neighbourhood planning initiatives as an opportunity to enhance walkability and to provide key amenities

This action is situated within the broader transportation goals of the CEEP. At present,

transportation accounts for 44% of GHG emissions in the City of Victoria (Government of B.C., 2010). However, as stated by the CEEP (2011) “shifting travel behaviours towards fewer and shorter trips, and towards transit and non-vehicular modes such as cycling and walking have the potential to have a significant impact on emissions at relatively low cost” (p.66). Implementing a pedestrian mall on Government Street can act as a catalyst towards alternative transportation options, thereby contributing to the desired target of 5-15% additional model split to cycling and walking by 2020 (CEEP, 2011).

The focus of this proposal is to outline how a pedestrian mall can help achieve the targets

and goals mentioned above, as well as to detail the steps needed to implement such a project.

Vision

People are excited and attracted to spend

time along Government Street Pedestrian

Mall

Mission

For Government Street to be an accessible,

vibrant hub of cultural, ecological and

economic growth for the City of Victoria, and

its residents.

Values of the Pilot Project

Inclusive Design: A vibrant

streetscape that is accessible to all,

thereby increasing pedestrian trips

and active living

Social and Environmental

Sustainability: Working to achieve a

‘triple-bottom-line’

Connection to Place: Foster greater

sense of place and community within

the Downtown Core

Figure 1. Hierarchy of Transportation and Mobility

Priorities (City of Victoria Official Community Plan,

2012 p. 52)

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RATIONALE

A pedestrian mall on Government Street has the potential to create an interactive, culturally vibrant walkway unique to the downtown core. Increasing pedestrian priority in Victoria would create further interest in sustainable and alternative modes of transportation, potentially decreasing greenhouse gas (GHG) emissions within the transportation sector. Such action correlates with the several of Victoria’s official documents and plans (Figure 2). With the growth of alternative retail centres (e.g. Uptown Mall and Millstream Mall), it has become increasingly important that the downtown exhibits a unique cultural atmosphere. Pedestrian malls have the potential to create a distinct and vibrant streetscape. This can attract local residents and visitors, therefore stimulating the local economy, as illustrated by Stephen Avenue Walk in Calgary, AB and Third Street Promenade in Santa Monica, CA (Appendix A). Financial benefits from past temporary closures of Government Street include:

$3 million revenue during the 2012 Victoria International Buskers Festival (Economic Planning Group, 2012).

17% increase in overall business at the Bay Centre during the Victoria International Chalk Art Festival (John Vickers, personal communication, November 5, 2012).

Figure 2 Key municipal documents which reference pedestrianization

• (8.24) Enhance the pedestrian corridor along Government Street Mall through the extension of public realm improvements northward to Pembroke Street, and street or pathway connections to nearby public spaces.

Official Community Plan

•(5.17) Extend the Government Street Mall from Yates Street northward to Pembroke Street, with links to the Rock Bay waterfront.

• (5.18) Develop a comprehensive streetscape plan for the extension of the Government Street Mall that focuses on improving the pedestrian and cycling environment and contains a consistent streetscape treatment throughout the entire length.

• (5.19) Support the location of active street-level commercial uses along Government Street to provide a dynamic and interesting environment between the Inner Harbour and the Rock Bay District.

•(6.131) Provide infrastructure to support seasonal and special event closures.

Downtown Core Area Plan

• (5.2.4) Use neighbourhood planning initiatives as an opportunity to enhance walkability and to provide key amenities

Community Energy and Emissions Plan

• (5.4) Allocate a study budget to explore the feasibility of restricting vehicles on Government Street through, from (approximately) Wharf/Humboldt Street to Pandora Street.

Pedestrian Master Plan

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CURRENT STATE At this point in time, Government Street is viewed by the City of Victoria as a pedestrian-

oriented zone. To date, the closure of Government Street has only been realized through the closure for short-term special events. These events, the Victoria International Buskers Festival and the Victoria International Chalk Art Festival, have been successful and are gaining support from the downtown business community (see Appendices B, C and D for further detail). However, two physical factors limit permanent closure to vehicles: (a) urban density, (b) seasonal weather patterns (i.e. winter/spring). Currently, the lack of pedestrians on Government Street during the off-season deems vehicular traffic necessary to bring vitality onto the street when rain and colder temperatures discourage pedestrian use (personal communications, J. Vickers Nov. 5, 2012 and Ken Kelly Nov. 9, 2012).

Although surveys indicate demand for a Government Street pedestrian mall from the public

(see survey results in the City of Victoria Pedestrian Master Plan, 2008), it has not been implemented in the past due to skepticism from business owners/managers directly on Government Street. This opposition is grounded in concerns that the lack of vehicle accessibility will prevent customers from reaching businesses, as well as business loss due to a decreased vibrancy and loss of tourist bus crowds (K. Kelly, personal communication, Nov. 9 2012).

In researching the feasibility of a pedestrian mall, we interviewed three key informants,

who in the past have had extensive involvement with proposals for a pedestrian mall on Government Street:

1. John Vickers, main champion of the Citizens for the Government Street Pedestrian Mall, and present Executive Director for the Victoria International Buskers Festival and Victoria International Chalk Art Festival. (Appendix B)

2. Mike Hill, City of Victoria Downtown Coordinator (Appendix C) 3. Ken Kelly, General Manager of the Downtown Victoria Business Association (DVBA)

(Appendix D)

The general consensus is that the permanent closure of Government street is not feasible (due to the aforementioned constraints), and the temporary closure of Government Street is not practical in the absence of a clear purpose (i.e. festival/event). At this point, vehicular traffic is believed to bring business and vibrancy that pedestrian traffic alone cannot make up for due to lack of urban density.

The following section of this report will outline why a pedestrian mall on Government Street should be moved forward and implemented as a semi-permanent closure.

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MOVING FORWARD

Government Street has been identified as an excellent candidate for pedestrian mall implementation. The street: (a) is already designated as a quasi-pedestrian zone; (b) is a main tourist corridor during the summer months; (c) is eligible to be a historic district in order to preserve, and capitalize on the city’s rich history; (d) is centrally located downtown; (e) would benefit from differentiation from other retail hubs in the City and region; and (f) supports a diverse range of businesses. With these in mind, the implementation of a Government Street Pedestrian Mall is achievable.

The way to move forward – beyond just special event closure – on Government Street is to

implement a seasonal pilot pedestrian mall. This recommendation encourages the City of Victoria to temporarily close Government Street during two summer months as a trial period for future long-term closures.

WHY PUSH FURTHER?

The City of Victoria has mandated the priority of pedestrians in four municipal documents. In the City of Victoria’s Official Community Plan, pedestrians are recognized as the top priority in the City’s transportation and mobility hierarchy. A quasi-pedestrian zone is good; but a public space designed specifically for pedestrians is better.

Pedestrian malls are dedicated to one mode of transport – walking. This means two things: a safer area and people out-and-about. These two conditions alone lead to significant advantages: health, cultural vibrancy, local revenue, and a shared, valued public amenity. Implementing seasonal, pilot pedestrian mall is an opportunity to address and achieve the following:

To respond to a long-stranding demand from Victoria’s general public for a pedestrian

mall on Government Street To help achieve the vision set out in the City of Victoria’s Downtown Area Core Plan to

“provide infrastructure to support seasonal and special events closures [on Government Street]” (City of Victoria, 2011, p.81)

To support economic opportunity for business by attracting an existing and a new and diverse crowd of visitors and residents

To promote downtown vitality and cultural vibrancy To create a semi-permanent space for ongoing streetscape activities, including special

events, buskers, and vendors To promote Victoria’s downtown and Government Street shopping experience as a

unique and distinct experience To distinguish Government Street and larger downtown shopping experience from

other retail areas (e.g. Uptown Mall). A pedestrian mall has the potential to change how residents identify with Victoria: a

forward-thinking municipality, open to sustainable growth. In brief: this research has shown that the advantages of a seasonal closure are worth it. The barriers that have stalled the momentum of this project in the past have been identified, and it is felt that they are manageable and can be overcome. The City of Victoria and businesses alike have the chance to take another step forward as leaders in municipal sustainability. Therefore, four specific guidelines have been developed as a framework to guide implementation.

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FRAMEWORK FOR PILOT PROJECT

1. TEMPORARILY CLOSE GOVERNMENT STREET DURING KEY SUMMER MONTHS

The proposed dates for closure are July 15th to September 15th. This research has shown that a proposed closure would be most successful during the summer: tourist numbers are at their peak, several existing summer festivals and events occur during this time, daylight hours extend late into the evening, and warm weather encourages outdoor activity.

Implementing the pedestrian mall during peak tourism season will result in an

influx of tourists entering the downtown area; increasing the potential numbers of pedestrian visitors to Government Street. As well, summer features several events and festivals including, the Victoria International Buskers Festival, the Victoria International Chalk Festival, and Rifflandia Music Festival.

In addition, the closure should extend into September. Including the first half of the

September takes advantage of university students (UVIC, Camosun College, Royal Roads etc.) returning to Victoria.. The student bodies of each institution represent a significant influx of population into the region. Particularly, this demographic is a key target, as this group frequently engages in downtown activities such as shopping and nightlife.

2. LAUNCH THE PILOT PROJECT IN CONJUNCTION WITH A SPECIAL EVENT In addition, it is a recommendation that the pilot trial period along Government

Street be launched simultaneously with an established special event. This could potentially achieve several ends: (a) the ‘kick-off’ of the pilot will be large-scale, drawing on populations that would not have necessarily otherwise attended (b) will reach a broad range of groups through street level advertisement for the project (i.e. signs, flyers, posters, and employees etc.) and (c) will create significant momentum and increased dialogue around the initiative.

It is also suggested that the pilot come to a close with another festival. In essence,

‘book-ending’ the pilot with two special events - as well as having several events during the project trial period – is highly recommended. The hope is to facilitate consistent pedestrian use of the pedestrian mall, eliminating the potential for ‘dead zones’ (i.e. low numbers of pedestrians on the walkway).

Suggested events to consider partnering with include the Victoria International

Buskers Festival (July 19th-July 28th, 2013), and Victoria International Chalk Art Festival (2013 dates unknown). On the other hand, launching the pilot project in conjunction with an event focused on sustainable initiatives, local organizations, and environmental education is strongly encouraged. For example, the City of Victoria could initiate an Environmental Expo for all-ages. This festival could model itself on the annual event hosted by the City of Calgary (City of Calgary, 2012).

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3. AREA COVERED BY PEDESTRIAN MALL

The proposed closure area for the pilot project is between Humboldt Street and Yates Street.

This area highlighted in red, (see Figure 4) has been selected because it enhances

pedestrian flow of the larger Downtown Core. Closure would provide a pedestrian corridor that connects the Inner Harbor walkway to other key pedestrian zones: Bastion Square and Trounce Alley. As well, pedestrian-friendly, wide sidewalks reach between Humboldt Street and Yates Street

A key component in the implementation of a pedestrian mall is for it to remain

vehicle free. Traffic flow should be restricted at all intersections with the exception of Yates Street and Fort Street (see Figure 6). These two streets have been chosen because they mark main routes for vehicles to navigate the downtown area without significant disruption from street closure.

Barriers will need to be placed at all other intersections along the pedestrian mall,

preventing vehicle access.

Figure 3. Areas where traffic will be able to make contact with Pedestiran Mall

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4. TIME PARAMETERS FOR CLOSURE: WEEK AND WEEKEND HOURS

The pilot closure should be implemented between the hours of 11am and 9pm every day. The proposed hours of closure for the pedestrian mall have been determined by peak pedestrian hours as well as by taking into account the specific needs of local businesses.

Access for delivery vehicles is a large concern for local businesses on Government

Street. To accommodate this, we suggest the closure begin at 11AM. This provides time for morning deliveries and preparation time for lunchtime pedestrian traffic. The pilot project will have a designated closure time of 9PM, to benefit late night business activity and accommodate the dinner rush experienced by restaurants and eateries.

It is important to work with the wants and needs of local businesses. While this pilot proposes a closure between 11AM-9PM, the hours are flexible, and provide room for negotiation during the consultation process with downtown businesses and property owners.

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FURTHER CONSIDERATIONS

In addition to the specified details outlined above, further considerations will have to be

taken into account, and potentially incorporated within the Government Street Pedestrian Mall Vision during the pilot project implementation process. They are as follows:

1. ADDITIONAL BUSINESS LICENSES AND PERMITS ALONG THE GOVERNMENT STREET

PEDESTRIAN MALL To maintain pedestrian activity and consumer momentum along the Government Street Pedestrian Mall, the City of Victoria will have to liaison with the Downtown Victoria Business Association (DVBA), and potential business licensees in order to address City policy surrounding additional licenses and permits on the street. Implementation of a pedestrian-only Government Street is not simply a switch from vehicle to foot traffic. The pilot project must foster a sense of ambience; a space where pedestrians are easily engaged and encouraged to stay on Government Street, and in its stores. Specific ways of doing this include: (a) promote store ‘spill-out’ tables on the walkway (b) amend City by-laws to allow for expanded/additional sidewalk patios for established businesses (i.e. pubs, restaurants, and eateries) (c) create additional licenses and permits for food carts, artisan tables, art installation spaces, and local talent showcases.

2. PROJECT COORDINATOR There are two primary ways to go about managing the implementation the Government St Pedestrian Mall. These include:

I. Create a private corporation or a public/private association to oversee management II. Manage as a municipal initiative, under the control of city officials

Establishing a separate entity to manage the pilot project is useful when large

amounts of infrastructure redevelopment and construction are required for a pedestrian mall to be feasible. As well, it would help to safeguard the City of Victoria from legal and financial risks. A mandated corporation separate from the municipality can foot larger expenses and hire external staff for ongoing management and promotion. However, this comes at a higher cost to the City of Victoria.

It is recommended that the Government Street Pedestrian Mall be managed through

the City of Victoria. This type of structure guarantees fair consultation and transparency, while situated in the larger context of the City of Victoria’s downtown area plans.

It is suggested that a one-year contract position for a Project Coordinator be created,

to oversee the implementation of the pilot project. The exact details of this position are not within the capacity of this report to determine. However, a list of potential responsibilities to be considered when a job posting is drafted can be found in Appendix E.

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Following the pilot project, the City of Victoria can determine the most appropriate way for the position to move forward in order to effectively deliver the seasonal closure of Government Street.

3. DESIGN The parameters of this report do not encompass design details of the pedestrian mall. We simply do not have the capacity to accurately inform the appropriate design principles. Upon implementation, the City of Victoria will need to decide on a suitable organization (consulting firm, city planning, etc.) to complete this task. Conveniently, Government Street is already designed for accessible walking due to the following features:

Minimal, rounded curbs Broad sidewalks Pedestrian seating One-way vehicle traffic Attractive storefronts

Pedestrian practicality, cultural vibrancy, historical preservation, parking, and measures to ensure intersection safety (Fort, Broughton, and Courtney) should be prioritized within the design.

Several successful pedestrian malls have been implemented across North America. Two examples that could potentially act as frameworks for design or infrastructural aspects of pedestrian malls are Stephen Ave., Calgary, AB and Third Street Promenade, Santa Monica, CA. Please see Appendix A for a brief outline of their distinctive features.

4. LOST PARKING SPOTS

Between Humboldt and Yates Streets, a total of four parking spots along the road will be lost. These spots are all located at the corner of Yates Street and Government Street. It is recommended that these be compensated for by providing businesses around this area (corner of Yates and Government) with “1 hr free” parking vouchers to give customers with concerns.

5. ECONOMIC COST The City of Victoria will have to recognize the cost of this project in their 2013 budget. We do not have the capacity to predict the expense of the pilot project, but have outlined specific factors that will need to be considered for the pilot project. They are as follows:

Staff: The staffing costs will be highly dependent on the nature of the management structure. However, the following ways to ensure the efficient use of funds are suggested: (a) employ a co-op student during the summer months; (b) use volunteers whenever possible.

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Advertisement

Street closure technicalities (i.e. signs, barriers)

Monitoring and evaluation costs (i.e. Public survey): Costs for this stage will include materials, administration of survey, and employee time spent collecting and analyzing the information

6. FINCANCIAL SUSTAINABILITY

In order to ensure pedestrianization is as financially sustainable as possible, all

options should be explored when seeking ways to remain cost-neutral. Some of these could

include:

Charging an increased rate for temporary business licenses (i.e. Food Carts). A

higher fee also ensures only serious, high-quality businesses will seek to

operate in the area

Collection of fees for busking licenses. At a minimum, fees should cover the

administration costs for granting them.

Exploring all options for grants from other levels of governments, and the

private sector.

7. OTHER KEY STAKEHOLDERS While businesses are the focus of this pilot’s engagement process, there are six other key stakeholder groups that should be appropriately consulted prior to implementation. These include (but are not limited to):

BC Transit Horse Carriage Business Tours: TallyHo Tours, Victoria Carriage Tours, and

Black Beauty Line Ltd. Taxi Drivers: Bluebird Cabs, Victoria Taxi, YellowCab, Akal Airporter, Ascot

Limousine Services Pedicab Businesses: Victoria Pedi-Cab, Kabuki Kabs Tour Companies: Pacific Coach, Royal Blue Line, Gray Line, Capital Tours,

McCullough Coach Lines Emergency Services

8. OPPORTUNITIES FOR GROWTH

The vision for the pilot is not exclusive. The sections above outlined what this research has determined to be the most feasible for the initial pilot project. However, it is not limited to this. The City of Victoria can consider the following suggestions in order to expand the pilot or engage with a more extensive closure at a later date:

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i. Including garden plots along Government Street (resulting in the permanent seasonal closure of one traffic lane), in addition to a site for local non-profits to engage with the community

ii. Branding the Government Street Pedestrian Mall with a slogan, and creating a website for online interaction

iii. Implementing the Government Street Pedestrian Mall as a landmark for pedestrian way-finding downtown

9. INFORMING DRIVERS Due to the potential inconvenience to drivers, notice as to which roads will be

affected by the closure should be provided well in advance of the pilot launch date. There are several methods that can be used to adequately inform Victoria drivers including:

i. Clear signage warning about the closure on effected streets (View Street,

Broughton St, and Courtney Street) as well as explaining what will occur if cars are occupying restricted areas (i.e. ticket or towing).

ii. Informational pamphlets on car windshields parked downtown informing about pedestrian mall and the effects on drivers, which roads will be affected, and alternative routes a week before pilot implementation.

iii. Arrange segment on local radio show discussing the pedestrian mall and the effect it will have on drivers, which roads will be effected, and alternative routes

iv. Have signs around downtown, other than ones on directly affected streets, stating when pedestrian mall will occur and which streets will be affected by it

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BUSINESS ENGAGEMENT

Moving forward with a temporary pedestrian mall on Government Street will require that

particular attention be paid to existing businesses, and business owners. Given that these

stakeholders are most directly impacted by the proposed project, and have in the past voiced their

skepticism, it is important that they be consulted at the earliest possible time.

The goal of business consultation is not to seek approval for the pilot project. Rather, the

objective is to engage businesses as partners in the fine-tuning of the vision for the Government

Street Pedestrian Mall, with the aim of better understanding their particular needs, and becoming

aware of any specific considerations to be taken into account. Ultimately, the consultation process

will inform businesses of the proposed scale and scope of the project, and seek feedback as to how

the particular aspects of the pilot can be tailored to ensure their interests are accounted for.

The following is an outlined course of action for consulting and engaging business owners

on the proposed temporary Government Street Pedestrian Mall.

I. Consult businesses through the use of a communications letter. This letter will detail the vision of the temporary closure, the perceived benefits to the community and to businesses, and will allow businesses the opportunity to provide feedback as to how the pilot can be tailored or altered to benefit them. See Appendix F for a sample communications letter and Appendix G for a sample feedback form.

II. Where possible, communications letters should be delivered in person to businesses. A second option is to mail out letters to business managers. In each instance, directions for returning the feedback form should be explicit.

III. Following the City of Victoria’s Civic Engagement Plan (2012), gathered feedback must be used meaningfully and efficiently and businesses must be reported back to. This means that feedback provided by businesses should be incorporated into the existing vision for the Pedestrian mall wherever possible (provided it does not undermine the premise of the pilot). Secondly, the feedback incorporated into the plan should be communicated back to the businesses to indicate that their feedback has been taken seriously, and that the City’s goal is to benefit and accommodate all stakeholders, including business owners.

IV. Suggest that the DVBA coordinate with Government Street businesses to track and

record detailed sales data during the pilot project. Upon pilot evaluation, work with the DVBA to collect and aggregate sales results from prior years and pilot year, so that the economic impacts of the pedestrian mall can be quantified.

V. Throughout the pilot, encourage business owners to take advantage of the streetscape, through setting up booths, tables, displays, etc. This will contribute to the overall atmosphere of the pedestrian mall, as well as promote local business.

VI. Following the pilot, businesses will be engaged in a project evaluation process. See

the following section on Monitoring and Evaluation for further detail.

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MONITORING AND EVALUATION Monitoring must occur throughout the duration of the pilot project, so that a robust evaluation can be conducted upon pilot completion.

PUBLIC MONITORING AND EVALUATION During the pilot project, questionnaires will be given to a random sample of pedestrians on

Government Street and other commercial centres (i.e. Uptown Mall) (Please see Appendix H for sample surveys). This will help to determine the nature of the demand for a pedestrian mall, and provide important information regarding what sets the downtown apart from other commercial hubs. Particularly, it will help to understand:

How people get downtown Why the public are choosing (or not choosing) Government Street Whether the pedestrian mall influenced people’s decision to choose the downtown core

as a commercial space How or if the pedestrian mall enhanced the public/pedestrian experience The main demographic visiting the pedestrian mall (families, students, etc.)

BUSINESS EVALUATION At the end of the pilot period, follow-up will be carried out with businesses affected by the

closure. This will include businesses and property owners located between Humboldt Street and Yates Street, as well as peripheral streets such as Courtenay Street, Broughton Street, Fort Street, and View Street. The follow up will focus on businesses experience of the pilot project, and when possible, efforts should be made to request quantified sales reports (most likely through the DVBA). As well, businesses should be consulted for their input on other possible issues (i.e. delivery access, and changing customer demographics, etc.) These will be best conducted through a combination of personal interviews and focus groups with business and property owners.

Depending on the feedback from these processes, the implementation of a Government Street pedestrian mall could be adjusted for future years, in order to ensure maximum benefits for the public, businesses, and the City of Victoria. It is predicted that the information will generally point towards one of three future options:

1. Extend the pedestrian mall to a larger area, longer hours, or longer season.

2. Keep the pedestrian mall at the same time and area as the pilot project.

3. Decrease the extent of pedestrianization, or if necessary, discontinue the pedestrian mall.

An evaluation matrix may be used to assess the overall effectiveness of the pilot, particularly as it relates to achieving social, economic and environmental benefits. A sample evaluation matrix can be found in Appendix I.

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CONCLUSION

A pedestrian mall along Government Street has the potential to foster a sense of place and promote Victoria’s downtown as a unique and distinct shopping experience in the region. As an area designed specifically for pedestrian traffic, Government Street will become a highly valued public amenity that capitalizes on cultural vibrancy, increased safety and downtown vitality. Through implementing a pilot project, the City of Victoria is able to gauge the potential benefits to the public, businesses, and the City itself, as well as help determine the most appropriate ways to move forward with a Government Street Pedestrian Mall in the future.

This research has shown that a pilot project has potential to provide benefits spanning social, economic and environmental sectors, and is feasible for implementation. The City of Victoria has an opportunity to take another step forward as a leader in sustainable infrastructure. Residents have a chance to reconnect with their downtown. And businesses have an opportunity to benefit from increased pedestrian traffic. The City of Victoria should take the next steps forward to realize the vision of a pedestrian mall on Government Street.

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REFERENCES City of Calgary. (2012). Mayor’s Environment Expo 2013. www.calgary.ca

City of Victoria. (2008). Pedestrian Master Plan.

City of Victoria. (2011). Downtown Core Area Plan.

City of Victoria. (2012). Community Energy and Emissions Plan.

City of Victoria. (2012). Foundations for Success: A strategy to improve civic engagement at the City

of Victoria.

City of Victoria. (2012). Official Community Plan.

Economic Planning Group. (2012). Victoria 2012 International Buskers Festival: Economic Impact

Analysis.

Government of British Columbia. (2010). Victoria City: Updated 2007 Community Energy and

Emissions Inventory.

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APPENDIX A

TWO EXAMPLES OF SUCCESSFUL PEDESTRIAN MALLS

1. Calgary, AB, Canada – Stephen Avenue.

Image: http://www.calgarydowntown.com/events/add-an-event.html

Features that have made this pedestrian mall a success:

Implementation that did not eliminate vehicle traffic completely; instead specified closure times appropriate to Calgary’s downtown were considered

Spill-out of businesses on to the street, in particular, restaurant patios & additional food carts

Investment in pedestrian oriented infrastructure: street furniture, foliage, lighting, and sculptures/art installations

IMPORTANCE TO VICTORIA, BC: closure of Government Street is flexible – it can be designed to meet the

needs of the city, and downtown goals of beautification.

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2. Santa Monica, California, USA – Third Street Promenade

Image: http://de.wikipedia.org/wiki/Datei:Santa_Monica_3rd_Street_Promenade.jpg

Features that have made this pedestrian mall a success:

Effective promotion to locals through a “support local” campaign, including a weekly farmers market

Effective advertisement to tourists as a must-see “shopping destination” in the City Location: heart of downtown Santa Monica, close to vibrant waterfront Unique showcases of local talent and vendors

IMPORTANCE TO VICTORIA, BC: Government Street Pedestrian Mall can be an accessible, unique

shopping experience that can be tailored to a targeted audience.

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APPENDIX B

SUMMARY OF INTERVIEW WITH JOHN VICKERS, VICTORIA INTERNATIONAL BUSKERS

FESTIVAL Monday, November 5th, 2012

1. Recommendations John Advised that there be no closure over the winter. The street would be a ghost

town. Over the winter, he believes the cars bring vibrancy that the lack of pedestrian density does not. He thinks it will be about 10-15 years until there is enough pedestrian density for a permanent mall.

Have all delivery trucks are off the road by 1pm. He recommends closing from Humbolt to Yates or Fort to Yates over July-August.

Bringing in vibrancy through organized buskers is a necessity.

2. Opposition Business opposition is around concerns regarding the lack of vehicular traffic and

tourist bus accessibility to the area. Old and Established business owners seem to be the main business opposition to a

pedestrian mall. Since the DVBA must be a voice for each merchant who is a member of it, and there are such a wide variety of members, they cannot fully commit to supporting a closure. However, you don’t need 100% support from businesses, as indicated by the Oak Bay Avenue annual closure for the Christmas Light Festival which only has 75% support.

3. First Buskers Festival An estimated economic impact done by the City of Victoria put profits up $3 million

city wide. View to Yates, and centered at Eddie Bauer. The closure at View was awkward because

cars coming up Government had to turn onto Fort anyway because couldn’t turn onto View. Therefore they actually just ended up putting road blocks up at Fort and closing it from Fort to Yates.

Ran from 6-10pm and lasted 10 days.

4. Chalk Art Festival On the road, many people expressed their full support for the closure, saying it should

have been done a long time ago. 18/21 businesses on Government Street said it was beneficial to their business. One artist in the Bay centre who was there for 5 days brought in a 17% increase in

overall mall business Fort to Yates. Street shut down completely for 48 hours over the weekend. A 3 day notification beforehand was given to businesses so they could have their

deliveries made beforehand.

Contact Information

Email: john.vickers@victoriabuskers.com

Phone: 250.661.5350

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APPENDIX C

SUMMARY OF INTERVIEW WITH MIKE HILL, CITY OF VICTORIA

Tuesday, November 6th, 2012

Mike Hill works for the City of Victoria as a Downtown Community Development Coordinator. His

relevance to this project includes his past attempt at pushing forward a pedestrian mall on

Government Street, as well as understanding both the City of Victoria’s and the downtown context.

The following is a summary of the key points brought up during the interview:

1. In trying to push a pedestrian mall forward, there needs to be a clear purpose. Particularly,

as wide sidewalks already exist on Government Street, what is the incentive to close the

street even more? Is it to improve safety, enhance downtown vitality, or increase the

number of pedestrians? In addition, it needs to be identified how Government Street

specifically will help fulfil this purpose. The purpose needs to dictate the potential of a

pedestrian mall to outweigh the barriers, as well how it will contribute to the city.

2. A strong champion is needed in order to push a pedestrian mall through. Thus far, the

champion has been external from the city, and has had a clear purpose for the pedestrian

mall (i.e. Buskers festival, Chalk festival).

3. Deliveries are a key business concern, so any pedestrian mall should work around key

delivery times.

4. If a closure is to be implemented in conjunction with a special event, the event should not

include any overwhelming distractions that would divert attention away from businesses.

5. There is a need for direct business engagement if pushing a proposal for a pedestrian mall

forward.

Contact information:

Email: mhill@victoria.ca

Phone: 250.361.0397

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APPENDIX D

SUMMARY OF INTERVIEW WITH KEN KELLY, DVBA

Friday, November 9th, 2012

Ken Kelly was a key-informant for understanding the downtown business perspective on the

subject of a pedestrian mall. The following is a summary of the interview:

1. The DVBA does not support a permanent closure of Government Street. Particularly, Ken

Kelly indicated he did not believe a permanent closure was feasible, due to factors such as

being subsumed within a car-oriented culture, having an existing walk-able downtown, a

lack of urban density, and existing wide sidewalks that are pedestrian-friendly on

government street.

2. Closing off the street to cars is a concern to some business owners, as they feel the lack of

traffic may limit their customer’s availability to reach their business.

3. A discussion was had with respect to the recent Buskers festival and Chalk art festival that

resulted in temporary event closure of Government Street during key times in the 2012

summer. The following comments were made with respect to these events:

a. A meeting was held in anticipation of the buskers festival with business and

property owners in the downtown. The prevailing negative opposition that existed

at the time was mostly due to a non-understanding of the impacts of the busking

festival. A follow up survey was sent out after the festivals, however, the survey, as

well as the results, was unable to be located.

b. The Chalk festival was viewed as the most successful by the businesses as it

integrated professional artists with other activities such as a kid’s art area.

Integrating the two activities ensured the street was animated, and provided a

reason for people to stay in the vicinity, and interact with other aspect of

Government Street beyond the festival.

c. The Buskers festival was viewed by businesses in a less positive manner as it was

being held at multiple locations, so the public were moving from event to event,

without spending much time on Government Street.

4. Ken Kelly is open to non-permanent closures.

5. Ken Kelly indicated that a persuasive organizer is the reason that the buskers and chalk

festivals went through.

Contact Information:

Email: ken@downtownvictoria.com

Phone: (250)386-2239

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APPENDIX E

ROLES AND RESPONSIBILITIES FOR PILOT PROJECT COORDINATOR

Role: Project Coordinator for the Government Street Pilot Pedestrian Mall

Department: City of Victoria Sustainability Dept.

Contract: One year

Potential Responsibilities:

Work directly with and report to the City of Victoria’s Downtown Coordinator

Contact person for the project; liaison with downtown businesses, community members,

and key stakeholder groups

Facilitate communication between the City’s Departments (i.e. Communication, Transport,

Parks and Recreation, Engineering, and Legislative Services)

Develop in partnership with municipal employees: (a) final engagement strategy, (b) create

promotional material for businesses and the public (c) provide pilot vision for the

implementation design – signage, enforcements, and physical barriers, etc.

Work closely and ensure compliance with City of Victoria bylaws, the following four in

particular: Streets and Traffic, Sidewalk Cafes Regulation, Outdoor Market, Sign Street

Entertainment Miscellaneous Amendments

Coordinate the monitoring and evaluation process; delivering the outcomes of the pilot

project to the City of Victoria

Maintain an online presence (facebook, twitter, pilot blog, etc.) in order to increase project

awareness

Organize volunteer positions and shifts

Foster reliable, honest relationships with downtown businesses and property owners

Writing grant applications to receive additional financial support for the pilot project

Provide the vision for a project website; and communicate ideas to website developers

Work in relationship with the City of Victoria police department to get their personnel

informed and on board for the pilot project

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APPENDIX F

SAMPLE COMMUNICATIONS LETTER FOR BUSINESSES ON GOVERNMENT STREET

Dear Government Street Business Owners and Managers, Victoria’s Downtown is a vibrant and flourishing regional hub for local business and culture. Government Street has a particular appeal due to the unique character of the streetscape and the diverse businesses and shopping opportunities. In order to build on the existing character of Government Street, and create an even more vibrant and alluring streetscape, a proposal has gone forward to implement a pilot project for the temporary closure of Government Street. The details of the pilot project include weekday and weekend closure of the road between July 15th and September 15th, from Humboldt Street to Yates Street and between the hours of 11AM and 9PM Monday to Sunday. Revitalizing the downtown through the temporary closure of Government Street is being done for several reasons:

To respond to a long-stranding demand from Victoria’s general public for a pedestrian mall on Government Street

To help achieve the vision set out in the City of Victoria’s Downtown Area Core Plan to “provide infrastructure to support seasonal and special events closures [on Government Street]” (City of Victoria, 2011, p.81)

To support economic opportunity for business by attracting an existing and a new and diverse crowd of visitors and residents

To promote downtown vitality and cultural vibrancy To create a semi-permanent space for ongoing streetscape activities, including special

events, buskers, and vendors To promote Victoria’s downtown and Government Street shopping experience as a

unique and distinct experience To distinguish Government Street and larger downtown shopping experience from

other retail areas (e.g. Uptown Mall). We feel that this pilot project will help attract tourists and local residents to Government Street, and will contribute positively to local business. We recognize that in the past, similar proposals have not been met with full approval by the Government Street business community. However, we would like to emphasize that the temporary closure is being conducted as a pilot project. Therefore, we want to provide you with the opportunity to let us know what can be done to help this pilot project benefit you. Attached to this letter is a feedback form. The intent of this form is to provide us with information about how we can best tailor this pilot program so that all interests are being considered in our vision. The more detailed feedback you can provide for us, the more successful the Government Street Pedestrian Mall Pilot Project can be. Thank you in advance for your responses. Best Regards,

26

APPENDIX G SAMPLE FEEDBACK FORM FOR BUSINESSES

Business Feedback Form

Please fax/mail/drop off this form to (insert location) by (insert time) on (insert date)

Name of business: _________________________________ Contact name: ________ ____________________________ Contact number: ______ ____________________________

Please answer the following questions: 1. Do the proposed hours of 12am to 7pm (10pm on weekends) permit deliveries and the conduct

of other commercial or on street business activities? Please explain. Comments:

2. Do the proposed dates of July 15th to September 15th allow for business activity to be

conducted? Please explain. Comments:

3. Does the proposed area of Humboldt St. to Yates St. allow your business to be operated as

normal? Please explain. Comments:

27

4. Please indicate how your business could be encouraged to participate in the pilot street closure ( i.e. do you need street/sidewalk space; would you consider “sponsoring” street activities outside of your business; do you have any ideas for livening up the streetscape).

Comments:

5. Please indicate any further considerations that the City of Victoria could take into

account to ensure that this Pilot Project is beneficial for your business.

Comments:

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APPENDIX H

SAMPLE EVALUATION SURVEYS Government Street Survey 1. Where did you travel here from? 2. What brought you here? 3. Who did you come with? (i.e. how many people and what is your relationship) 4. How did you get downtown? 5. Have you been to Government St. before when it was open to vehicle traffic? 6. Whic format do you prefer on Governmnet St.: Pedestrian Mall, or Open to Vehicle Traffic? 7. How do you think Government St. Mall could be improved? 8. How did hear about the pedestrian mall? Off-Site Survey (e.g. Uptown) 1. Where did you travel here from? 2. What brought you here? 3. Who did you come with? (i.e. how many people and what is your relationship) 4. How did you travel here? 5. Where do you prefer to shop: boutique stores, or franchise (big-box) stores? 6. Do you prefer shopping in pedestrian malls, or indoor malls? 7. How often do you visit downtown Victoria? 8. What would encourage you to shop in Downtown Victoria instead?

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APPENDIX I

SAMPLE PROJECT EVALUATION MATRIX

Chart 1. Triple Bottom Line Evaluation Matrix for Impact of Pilot Project.

*Low-emission transport – This includes all forms of transport that are not personal vehicles (i.e.

walking, bicycling, bussing)

City of Victoria

Public

Local Business

Economic

Revenue

No. of Customers

Breadth of Customers

Government St. identified as a unique and desirable

shopping location

Ecologic

Use of low-emission transport* around

downtown

Use of low-emission transport getting downtown

Environmental Awareness and Education

Social

Connection to Community

Time spent downtown

Exposure to Victoria’s arts

and culture downtown

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APPENDIX J

ARTICLE, TIMES COLONIST, “PEDESTRIAN MALL OFFERS HINT OF A BETTER DOWNTOWN”