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Temporary Uses As Tools for Urban Development

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Temporary Uses as Tools for Urban Development By Shelagh Graham A Practicum submitted to the Faculty of Graduate Studies of The University of Manitoba In partial fulfillment of the requirements for the degree of MASTER OF CITY PLANNING Department of City Planning University of Manitoba Winnipeg Copyright © 2012 by Shelagh Graham Abstract Temporary uses generally have a low profile in urban planning; there is not much research on them at this time and they are not a conventional tool within planners’ “tool kits.” The purpose of this practicum is to explore the effectiveness of temporary uses as tools for reanimating underutilized spaces and supporting strong urban design, especially in a slow growth city like Winnipeg. The argument put forward is that a better understanding of temporary uses and how they can be encouraged will make planning and design in downtown Winnipeg more flexible and adaptable to changing urban conditions while making better use of available space. The objectives of this research are to provide an overview of contemporary theory and practices regarding the temporary use of urban spaces; to develop recommendations for encouraging effective temporary use in Winnipeg; and to highlight gaps in the literature and to suggest directions for further research. Specific questions are asked regarding the claimed benefits and drawbacks to temporary uses of space, regarding the applicability of experiences in other cities to Winnipeg’s planning context, and regarding changes that could be make to Winnipeg’s policies practice in order to support and encourage a wider range temporary use projects. Several research methods, including a literature review, precedent studies, context analysis and policy document review, and stakeholder consultations, provide information to help develop eight recommendations suggesting improvements that could be made to the way in which temporary use projects are currently handled in Winnipeg. i Acknowledgments Any time I pick up one of these documents, I instinctively turn to the acknowledgements page. The opportunity to publicly recognise those who have helped you accomplish a goal does not arise often enough. With that said, it is not surprising that this section will be a bit longer than one might expect. It is essential that I acknowledge organizations that have provided funding to support my studies. The University of Manitoba Graduate Fellowship fund, EH Price, and the International Students’ Centre have been generous in their support. I would not have had all the opportunities I did without their help. A special thank you to those who participated in this research. Thank you for your willingness to explore an uncommon topic and for sharing your thoughts and experiences with me. I would like to thank Gerry Couture for his enthusiasm and for all the discussions over coffee. Molly Johnson and Alan Freeman for their unique perspectives and for their willingness to jump right in. Dr. David Witty provided guidance and advice throughout my academic career. Other professors and instructors have inspired and encouraged me to keep going and have helped keep me well-rounded. Dr. Richard Perron, Dr. Marcella Eaton, and Jean Trottier have been generous with their time, especially to a student not in their department! Jeffrey Garcia’s enthusiasm and positive energy have cemented my love of teaching. Ole B. Jensen and Henrik Harder, my advisors at Aalborg University, encouraged and challenged me to produce work I am truly proud of. On exchange at Aalborg University I was a member of the best group ever. Eva, Simon, and Dorte, thank you so much for a full semester of excellent discussion. You can never talk too much! Kaeley and Vicky have kept me on track and have been great friends at the same time. Yvonne Helden and Rosemary Visevic were patient and friendly despite all my questions and extra paperwork demands. Finally, my family. Alex, Heather, Erin, Mom and Dad... How can a person ever thank their family enough? Mine is truly wonderful. ii Table of contents Abstract .......................................................................................................................... i Acknowledgments ......................................................................................................... ii Table of contents ......................................................................................................... iii Part 1: Introduction & background .............................................................................. 1 1.1 Introduction ................................................................................................................. 2 1.2 Problem statement ...................................................................................................... 7 1.3 Importance of the study ............................................................................................ 9 1.4 Research methods ..................................................................................................... 10 1.5 Organization of the document ............................................................................... 18 Part 2: Temporary uses in planning literature ............................................................. 19 2.1 What are temporary uses? ........................................................................................ 20 2.2 History of concept ................................................................................................... 24 2.3 Potential benefits ....................................................................................................... 30 Benefit: Adaptable/flexible planning ................................................................. 31 Benefit: Adaptive reuse ........................................................................................ 35 Benefit: Catalyst for change................................................................................. 36 Benefit: Fill unmet needs ..................................................................................... 38 Benefit: Participation and communication tool ............................................... 39 Benefit: Highlight creativity ................................................................................. 40 Benefit: Encourage entrepreneurship ................................................................ 42 Benefit: Benefits for property owners ............................................................... 44 Benefit: Environmental sustainability ................................................................ 45 2.4 Potential challenges ................................................................................................... 47 2.5 Variables ...................................................................................................................... 53 2.6 Planner’s role .............................................................................................................. 59 Reframing change and temporary uses .............................................................. 60 Tactics & strategies ............................................................................................... 62 Navigating relationships between actors ........................................................... 65 Creative governance ............................................................................................. 68 Part 3: Precedents ....................................................................................................... 75 3.1 Berlin, Germany ........................................................................................................ 76 3.2 Zagreb, Croatia .......................................................................................................... 80 3.3 Portland, USA ............................................................................................................ 85 3.4 Edmonton, Canada ................................................................................................... 90 3.5 Summary ..................................................................................................................... 95 iii Part 4: Winnipeg ......................................................................................................... 99 4.1 Context: Winnipeg .................................................................................................. 100 4.2 Existing policies and their implications for temporary uses ............................ 104 OurWinnipeg .......................................................................................................... 104 Zoning by-laws .................................................................................................... 108 Secondary plans ................................................................................................... 109 Design guidelines ................................................................................................ 110 Winnipeg Building By-Law & Manitoba Building Code ......................................... 113 Vacant Buildings By-Law ....................................................................................... 114 Special events permits ........................................................................................ 115 4.3 Organizations supporting downtown development .......................................... 117 CentreVenture Development Corporation ....................................................
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