Revisiting Calgary's +15 System: Policies and Future Directions
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University of Calgary PRISM: University of Calgary's Digital Repository Graduate Studies Legacy Theses 1999 Revisiting Calgary's +15 system: Policies and future directions Chalmers, Cameron L. Chalmers, C. L. (1999). Revisiting Calgary's +15 system: Policies and future directions (Unpublished master's thesis). University of Calgary, Calgary, AB. doi:10.11575/PRISM/15058 http://hdl.handle.net/1880/25424 master thesis University of Calgary graduate students retain copyright ownership and moral rights for their thesis. You may use this material in any way that is permitted by the Copyright Act or through licensing that has been assigned to the document. For uses that are not allowable under copyright legislation or licensing, you are required to seek permission. Downloaded from PRISM: https://prism.ucalgary.ca Revisiting Cal~arv's+15 Svstem: Policies and Future Directions Cameron L. Chalmers A Master's Degree Project submitted to tbe Faculty of Environmental Design in partial fulfillment of the requirements for the degree of Master of Environmental Design (Planning) Calgary, Alberta September, 1999 O Cameron Chalmers 1999 National Library BiMiothkque nationale 1+1 of Canada du Canada Acquisitions and Acquisitions et Bibliographic Services sewices bibliographiques 395 Wellington Street 395. M Wellington OctawaON KIA ONI OttawaON K1AOFM Canada CaMda The author has granted a non- L'auteur a accorde une licence non exclusive licence allowing the exclusive pernettant a la National Library of Canada to Bibliotheque nationale du Canada de reproduce, loan, distribute or sell reproduire, preter, distribuer ou copies of this thesis in microform, vendre des copies de cette these sous paper or electronic formats. la fome de microfiche/film, de reproduction sur papier ou sur format electronique. The author retains ownership of the L'auteur conserve la propriete du copyright in this thesis. Neither the droit d'auteur qui protege cette these. thesis nor substantial extracts fiom it Ni la these ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent Etre imprimes reproduced without the author' s ou autrement reproduits sans son permission. autorisation. The development of the +15 pedestrian "skywdk" over the last 30 years has dramatically effected the physical, socid, and economic downtown environment in Calgary. The introduction of this second level of internalized public space however was unprecedented, and required the development of new policy objectives and implementation mechanisms for its development and management. This study traces the changing policy objectives of the system and its development and management policies. Through this, the system's objectives are deduced and compared with a survey of +I 5 users to assess whether the system is accomplishing its policy objectives, and the impact it may have on the downtown environment. The results of the analysis indicate that for the most part, the system serves its users well, and meets its policy objective of creating a second level of distinctly pedestrian space. It is used fiequently and is a convenient, comfortable alternative to the sidewalk. However, respondents to the survey do not use, nor value, the +1 5 as a comprehensive system, but rather use it for short trips when it is more convenient and comfortable than the street. Further, it appears the system may divide the downtown based on socio-economic class. The homogenous survey population was primarily office workers, far from a microcosm of the downtown population. These findings raise questions for fbture research about the appropriateness development policy objectives of connecting the entire downtown, and the implementation policy of providing bonus density to developers for providing +15 features in their developments. The assessment of the system and its policy appears to indicate revisions to the implementation policies, and particularly the bonus policies, are deserving of Merresearch and consideration. Keywords: +IS; Plus 15; Skywalk; Skyway; Pedestrian Bridge; Downtown Revitalization; Downtown Calgary; Pedestrionization; Privatization; Incentive Zoning iii Acknowledgments This work results from Dr. Pad Maas' passion and vision for planning in Downtown Calgary. I would like to off- my sincerest gratitude to him for giving me this project while I was employed at the City of Calgary Planning and Building Department, and for his expertise and guidance for over a year theder. Also, the entire Downtown Planning Division at the City offered tremendous insight into not only this project, but into the issues surrounding downtown pianning. I would also like to acknowledge the incredible support provided by Dr. Richard Levy fiom the Faculty of Environmental Design. His perspective on academia - and life - proved invaluable during the final stages of this work. Similarly, I am indebted to Dr. Bill Zweman fiom the Sociology Department for his support. Finally, I wish to acknowledge the input and support of my fiiends and colleagues. Particularly my EVDS compatriots Adam, Jamal and Mike, and all of my fiends and colleagues at the M.D. of Rocky View Planning Services. Dedication This work would not have been possible without the unwavering love, support and motivation offered by my wife Donna. I am eternally gratefid to her for providing me the opportunity to pursue this work, and for kindness and understanding during times of strain. Table of Contents Title Page 1 Approval Page i i Abstract iii Acknowledgements iv Dedication v Table of Contents vi List of Figures ix List of Tables ix List of Maps x List of Photographs x Chapter One Introduction I 1.1 Background 1 1.2 The Study: Revisiting Calgary's + 15 System 3 1.2.1 Problem Definition 3 1.2.2 Study Purpose 4 I.2.3 Study Objectives 5 1-2.4 Research Methods 6 1.2.5 Study Limitations I1 1.2.6 Report Outline i2 Chapter Two +15 Rationales and Development Policy I5 2.1 Introduction 15 2.2 Setting the Stage for Pedestrian/Vehicle Separation 15 2.2. I Historical Precedent 15 2.3 The Impetus for Skywalk Development: The North American Condition 17 2.3.1 Suburbanitation: Ttae Demise of the Core 18 2.3.2 Changing Retail Patterns 20 2.4 The Re-emerging Skywalk Concept 22 2.5 Calgary's +I 5: Early Development Rationale and Policy 23 2.5.1 The Emergence of + 15 Policy: Development Rationales of the 1960s 23 2.5.2 Refining the + 15 Concept 26 2.6 + 1 5 Implementation Policy: From Concept to Reality 27 2.6.1 The Downtown Development Guidelines 27 2.7 Evolving +1 5 Development Policy 3 1 2.7.1 Early Development 33 2.7.2 +15 Must Policy 37 2.8 The Evolution of Culirent +15 Policy 38 2.8. J The 19 79 Downtown Plan 38 2.9 Current +15 Development Policy 42 2.9.1 The Downtown Handbook of Public Improvements 42 2.9.2 Core Area Policy Brief 44 2.9.3 +15 Policy 45 2.9.4 Land Use Bylaw - 2P80 48 2.1 0 Summary: Primary Development Objectives 50 2.10.1 Development Policy Chronology 50 2.1 0.2 Development Policy Objectives 52 Chapter Thee +15 Operational Management Policy and Practice 53 3.1 Introduction 53 3.2 System Ownership: Public verms Private Property 54 3.3 + 1 5 Operational Management Policy and Practice 55 3.3.1 Maintenance Responsibilities 55 3.3.2 + 15 &mity Responsibilities 57 3.3.3 Signage 59 3.3.4 Operating Hours 63 3 -4 Summary: Primary Management Objectives 64 Chapter Four The Effect of Skywalk Development on the Downtown 66 4.1 Introduction 66 4.2 The SuccessM Downtown Environment: A Vital Pedestrian Space 67 4.3 Positive Eff'ects on the Downtown 68 4.4 Negative Effects on the Downtown Environment 70 4.5 The Skywalk Aesthetic 72 4.6 Skywalks: The Privatization of Public Space 75 4.6.1 Social Segregation: The Eflect oftk Skywalk System 77 4.6.2 The Social Consequences of Segregation 80 4.7 Skywalks and Downtown Vitality 81 4.7.1 Skywalks: The Demise of Downtown Vitality? 81 4.8 User Comfort: Management and Operational Concerns on Calgary's +l5 System and other Skywalk Systems 85 4.8.1 WayFnding Concerns on SkpvaIk Systems 86 4.8.2 Perceived Personal Safety on Skywalk Systems 88 4.9 Summary 92 Chapter 5 +15 Policy Review: User Survey Resrrlls 94 5.1 Introduction 94 5.2 Objective 1 : An Accessible System 96 5.2. I + 15 User ProEles: Socio-economic Segregation 96 5.3 Objective 2: A Second Level of Pedestrian Space 103 5.3. I Patterns of Use 104 vii 5.4 Objective 3: A Contiguous System 112 5.4.1 Connected Uses 113 5.4.2 User Patterns and the "System" Objective 122 5.5 Objective 4: Psychological Comfort 126 5.6 Summary of Findings 133 5-6.1Summary: Public Accessibili@ Issues 133 5.6.2 Summary: Skcocond Level Pedestrian Environment 134 . - -- 5.6.3 Summary A Contiguous System 135 5.6.4 Summary: User Comfort 136 5.6.5 Findings Sum- 137 Chapter Six ~onclusionsand Recommendations 139 6.1 Introduction 139 6.2 Development Policy Recommendations 140 6.2.I Development Policy Issues 140 6.2.2 Development Policy Recommendalions 144 6.2.3 Summary Development Policy Recommen&tions 147 6.3 Management Policy and Practice Recommendations 148 6-3.1 Management Policy and Practice Issues I49 6.3.2 Management Policy and Practice Recommendarions 151 6.3.3 Management Policy and Practice Recommendations Summary 155 6.4 Considerations for Future Research 156 References 160 Appendix A: Suwey Instrument 167 Appendir B: Frequency and Percentage Tables 180 List of Figures Figure 5.1 : Age Breakdown @=I8 1) 97 Figure 5.2: Residence Location (N= 18 1 ) 97 Figure 5.3: Employment Location 98 Figure 5.4: Days per Week Used in Summer versus Winter (N=181) 104 Figure 5.5: Reason for Using +1 5 System