REINVIGORATING THE URBAN HEART: DIRECTIONS FOR REVITALIZING DOWNTOWN BARRINGTON STREET, HALIFAX REGIONAL MUNICIPALITY Paul A. Sanipson submitted in partial fùlfillment of the requirements for the degree of Master of Urban and Rural Planning Dalhousie University Halifax, Nova Scotia September 2001 O Copyright by Paul A. 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TABLE OF CONTENTS Page 1 .0 Introduction 1.1 The Need to Revitalize Downtowns............ ... ............................... 1.2 Why Barrington Street and Downtowa Halifax? .......................... 1.3 Purpose of Thesis.............................................................................. 1.4 Research Method .............................................................................. 2.0 Barrington Street 1 Downtown Halifax 2.1 Background .................................................................................... 2.1 .1 Early History of Downtown Halifax ................................. 2.1.2 History of Barrington Street ............................................. 2.1.3 Changes in Transit............................................................. 2.1.4 Downtown in the Twentieth Century.............................. 2.1.4.1 Era of Growth: 1900- 1960s........................................ 2.1.4.2 Era of Urban Renewal and Decline - Post 1960......... 2.1.5 Present Conditions Downtown ....................................... 2.1 .5 .1 Indicators of Decline ................................................. 2.1 .5 .1.1 Vacant Stores / Properties .............................. 2.1 .5. 1.2 Decline in Pedestrian Activity ....................... 2.1.5.1.3 Safety............................................................. 2.1.5.1.4 Parking ........................................................... 2.1 .5 .1.5 Trmsportation Issues...................................... 2.1 -5.1.6 Cooperation of Property Owners.................... 2.1.6 Downtown Assets .......................................................... 2.1 .6.1 Recent Development. Activity ................................... 2.1.6.2 Historic Buildings .................................................. 2.1 .6.3 Arts and Entertainment Draw ................................... 2.2 Downtown Initiatives .................................................................. 2.2.1 Streetscape lmprovement Program ........................... 2.2.2 Barrington Street Special District .............................. 2.2.3 Capital District Task Force........................................ TABLE OF CONTENTS (cont') Page 2.2.4 Integrated Regional Planning Project ....................... 2.2.5 Municipal Development Plan ..................................... 2.2.6 Waterfront Open Space and Development Plan ...... 2.2.7 Downtown Dartmouth Secondary Planning Strategy 2.2.8 Parking Task Force.................................................... 2.2.9 Parking Facility .......................................................... 2.2.1 O Metro Transit Phase 1 Strategy............................... 2.2.1 1 Heritage Grants....................................................... 2.2.12 BIDC Programs..................................................... 2.2.1 2.1 Downtown Halifax Business Commission Prograrns 2.2.1 2.2 Other BIDC Prograrns ......................................... 2.3 Results........................................................................................ 2.4 Summary .................................................................................... 3.0 Case Studies........................................................................................... Trinity Royal Preservation Area. Saint John. N.B. ............... 3.1.1 Background ................................................................ 3.1.2 Initiatives .................................................................... 3.1.3 Results ......................................................................... 3.1.4 Summary..................................................................... The "Kings". Downtown Toronto............................................ 3.2.1 Background ................................................................ 3.2.2 Initiatives .................................................................... 3.2.3 Results ......................................................................... 3.2.4 Summary..................................................................... The Exchange District, Winnipeg............................................ 3.3.1 Background ................................................................ 3.3.2 Initiatives .................................................................... 3.3.3 Results ......................................................................... 3.3.4 Summary..................................................................... TABLE OF CONTENTS (cont') Page 3.4 Case Study Observations.......................................................... 3.4.1 Location and Characteristics.................................... 3.4.2 Initiatives and Results ................................................ 3.4.3 Applicability to Barriagton Street........................... 3.5 Other Initiatives: Arts. Cultural and Entertainment Districts 3.5.1 Toronto Entertainment District ................................ 3.5.2 Kelowna Cultural District........................................ 4.0 Recommendations................................................................................. 4.1 Short Term Recommendations................................................. 4.2 Long Term Recommendations................................................. 4.3 Conclusion ................................................................................. Appendix 1 List of Current Downtown Development Projects............ Appendix 2 Downtown Revitalization Questionnaire........................... References LIST OF FIGURES AND TABLES List of Figures Page Figure 2.1 Downtown Halifax Figure 2.2 Antiques Building Figure 2.3 Texpark Figure 2.4 HRM Parking Lot Figure 2.5 Downtown Development Figure 2.6 Development on Peninsula Figure 2.7 Heritage Buildings Figure 2.8 Neptune and Khyber Figure 2.9 Waterfront Figure 2.10 Parking Garage Site Figure 2.1 1 Sidewalk Café, Argyle Street Figure 3.1 Tnnity Royal Preservation Area Figure 3.2 King-Parliament and King-Spadina, Toronto Figure 3.3 The Exchange District, Winnipeg List of Tables Table 3.1 Case Study Matnx vii ABSTRACT It is commonly accepted that downtown revitalization is an increasingly important element in the planning of cities. Cities work better when they are diverse and livable, with a mix of land uses, high population densities and lively streets. The presence of vacant lots and underutilized buildings in the downtown does not make financial sense and is not good fiscal policy. It also contributes to fears of crime, a general sense of decline and continued underutilization and stagnation. The downtown portion of Barrington Street, as well as other parts of downtown Halifax, has experienced decline over the past thirty years. Despite some efforts to revitalize it, and some recent development activity, Banington Street continues to be undemtilized and rernains, to some degree, in a state of stagnation. The principle argument put foward is that revitalization proposals for Barrington Street should not be based primarily on heritage conservation initiatives, but rather on a combination of initiatives and incentives to promote reinvestment without adding regulatory barriers. Bamngton Street is examined in detail as are three case studies, one each from Saint John, Toronto and Winnipeg. Research on each area and interviews with key players in downtown revitalization reveal the key issues, initiatives and results related to revitalization. Recornmendations for the revitalization of Barrington Street and the surrounding downtown, based on observations made from the case studies, include a Special District in the form of an Arts and Entertainment District, possibly combined with a Heritage Conservation District, encouraging greater residential intensification within and surrounding downtown, implementing transportation and parking improvements, creating a downtown agency to oversee revitalization initiatives and examining possibilities for future regulatory and building code changes. LIST OF ABBREVIATIONS BIDC Business Improvement District Commission BI2 Business Improvement Zone CBD Central Business District DHBC Downtown Halifax Business Commission