Edmonton (Alta.) - 1992 - Suburban neighbourhood commercial centres (1992-03)

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II 1111111 II II II

127199716

7539

Suburban Neighbourhood

The City of Edmonton Planning and Development Library

Suburban Neighbourhood Commercial Centres

Winton

PLANNING AND DEVELOPMENT

C050 7539 1992 Ac. 127199716 City of Edmonton, Planning and Development 17 SUBURBAN NEIGHBOURHOOD COMMERCIAL CENTRES DA NO.

C050 7539 1992 Ac. 127199716 City of Edmonton, Planning and Development SUBURBAN NEIGHBOURHOOD COMMERCIAL CENTRES

SUBURBAN NEIGHBOURHOOD COMMERCIAL CENTRES

March 1992 Forecasting and Policy Development Section Policy and Information Branch

For more information, please call: Angela Hingston at 496-6061

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TABLE OF CONTENTS

Page EXECUTIVE SUMMARY

i

1.

INTRODUCTION

1

1.1 1.2 1.3

Background Purpose of the Project Report Outline

1 1 1

2.

THE SURVEY

2

2.1 2.2 2.3

The Sample Results of the Survey Evolution of Neighbourhood Shopping Centres

2 3 6

3.

DISCUSSION

8

3.1 3.2 3.3 3.4 3.5 3.6 3.7 3.8

Emergence of Dispersed Shopping Patterns The Impact on Neighbourhood Shopping Centres Service Businesses Community Activities The Effect of an Aging Population The Market and Neighbourhood Needs The Changing Role of Neighbourhood Commercial Centres Regulatory Provisions

8 9 11 11 11 12 13 14

4.

CONCLUSIONS

16

5.

MAPS Map 1 Map 2

APPENDICES

Following page 2 Following Page 11

,

EXECUTIVE SUMMARY Project Purpose The project on neighbourhood commercial centres was initiated to pursue in more detail the commitment in the General Municipal Plan (Bylaw 9076) to "ensure adequate neighbourhood services." The General Municipal Plan does not contain specific policies directing the development of commercial centres. The purpose of the project is to examine the characteristics and function of existing neighbourhood commercial centres as a basis for establishing guidelines for future development of centres.

The Survey A sample of 26 neighbourhood commercial centres was selected for survey. The centres represent a range of ages and are located in a variety of areas across the city. Typical neighbourhood commercial uses were identified. An increase in service businesses and in specialized stores was observed.

The Evolution of Neighbourhood Commercial Centres Local stores were first established to meet the daily needs of neighbourhood residents. A hierarchy of shopping centres then evolved with neighbourhood centres as the lowest order retail centres.

During the 1970s, the practice was to establish shopping centres as the central focus of each new neighbourhood, within walking distance of the majority of residents. Commercial centres are now more commonly located on arterial roads, serving passing traffic in addition to neighbourhood residents.

Discussion Shopping patterns have become more dispersed across the city and no longer support a retail hierarchy. Increased mobility and changing employment patterns have had an impact on the use of neighbourhood shopping centres.

The centres are now oriented towards the arterial road and the newer centres are designed to increase the visibility of individual stores from the road. Neighbourhood centres are oriented towards use of the car and their location is based on journeys home from work. Convenience stores have become associated with gas companies. Their distribution is determined more by market competition than by an attempt to meet neighbourhood needs.

Small commercial centres are no longer serving as a neighbourhood focus because of their location on the edge of the neighbourhood and orientation away from residential areas. The uses within these commercial centres do not relate directly to neighbourhood needs.

Page i •

If a commercial centre is to function as a neighbourhood focus, it will need to include communitybased activities which will bring neighbourhood residents together. Professional services are also likely to become more prevalent in neighbourhood centres. Uses which meet the needs of an older population are likely to be in greater demand. Neighbourhood centres must be able to accommodate a mix of different uses. Changes in design will be needed to provide better space for service businesses and other non-retail uses. Centres should be designed with the flexibility to adapt to different uses as needs change.

There are no policy guidelines to direct the provision of local commercial centres and the neighbourhood commercial land use district (CNC) has limitations. Neighbourhood commercial centres are no longer meeting neighbourhood shopping needs nor acting as the central focus of the neighbourhood. There has been an increase in service uses in neighbourhood centres in recent years yet the design of neighbourhood cenfres is not flexible enough to allow changes in uses. The change in function demands a change in the regulatory approach. The traditional neighbourhood commercial centre is no longer a viable form. New types of centres ("local activity centres") are evolving. These are small mixed use centres which may provide a means of regenerating the neighbourhood focus.

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SUBURBAN NEIGHBOURHOOD COMMERCIAL CENTRES 1. INTRODUCTION 1.1 Background Edmonton's recently adopted General Municipal Plan (Bylaw 9076, approved November 1990) expresses a commitment to ensure adequate neighbourhood services in suburban areas. The Plan does not contain specific policies directing the development of commercial centres which will serve the new suburban neighbourhoods. A subsequent project was set up to examine the provision of neighbourhood commercial centres. The project is a component of the 'Suburban Neighbourhood Concept Project.'

1.2

Purpose of the Project The purpose of the project is to examine the characteristics and function of existing neighbourhood commercial centres. In recent years, the function of neighbourhood centres has changed dramatically and the development proposals being submitted have required a change in the regulatory approach. The current project will examine the role of commercial centres and how commercial centres are being dealt with in proposals for revising the Land Use Bylaw. The following are components of this overall purpose: i)

Identify past trends and present features in neighbourhood commercial design and layout. ii) Analyze the function of neighbourhood commercial centres. iii) Discuss conclusions and issues with the Land Development Branch to develop a means of implementing the study findings.

1.3 Report Outline The following report presents findings from a detailed survey of 26 neighbourhood shopping centres. The report then deals with the evolution of neighbourhood centres in Edmonton, looking at the policy background and regulatory documents.

Some conclusions are drawn on the function of the neighbourhood centres. Issues have been derived from the information-gathering stage and the report discusses these. The second part of the report examines the relation of the commercial centres to the neighbourhoods they serve. The discussion section examines changing shopping patterns and their impact on neighbourhood centres.

Page 1 •

2.

THE SURVEY 2.1

The Sample A sample of 26 shopping centres was selected for detailed information collection.

The sample was chosen to reflect a wide age range of centres and to represent different geographic areas (see Map 1). A list of the shopping centres which were surveyed is included as Appendix 1.

The Neighbourhood Fact Sheets were the initial source of information for selection of shopping centres as they provide a comprehensive source of information.

Historical data is therefore readily available for several neighbourhoods in the sample. Change in population and land use can thus be identified in an effort to examine the changing role of neighbourhood shopping centres.

With a basic sample selected from the neighbourhood fact sheets, additional shopping centres were added for the north and north eastern parts of the city to ensure that all sectors of the city were represented in the sample. Shopping centres approved under a DC5 land use district were also added to the sample to enable a comparison to be made between the results of applying the DC5 and CNC land use designations.

Distribution of sample shopping centres Of the total sample of 26 neighbourhood shopping centres, 9 are located in the inner city and 17 are in the newer areas covered by area structure plans. Within the newer suburban areas, 3 of the centres are in West Jasper Place, 1 is in Castle Downs, 2 are in the Lake District, 2 are in Clareview, 4 are in Mill Woods, 2 are in Kaskitayo, and 3 are in Riverbend. An additional inner city centre was undergoing extensive renovation when visited and was excluded from detailed survey.

The oldest centres in the sample are the smallest ones, the smallest being in Avonmore, with only four units. The suburban centres vary in size, with some approaching the size of community shopping centres.

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Page 2

SHOPPING CENTRE LOCATIONS

MAP I .

2.2

Results of the Survey

Location The following centres are located at the junction of two arterial roads: Delton Square Clearwater Terwillegar

(127 Avenue and 82 Street) (153 Avenue and 97 Street) (40 Avenue and Terwillegar Drive)

The following centres are located on an arterial road: Victoria Trail Delwood Millcreek Plaza Daly Grove Medi-Mall Tipaskan Westbrooke Shopping Centre

(Victoria Trail and 132 Avenue) (132 Avenue and 82 Street) (40 Avenue and 50 Street) (23 Avenue and Mill Woods Road East) (34 Avenue and 82 Street) (119 Street and Fairway Drive)

The following centres are located on collector roads: Dunluce Square Lakeview Plaza Hermitage Road Shopping Centre Londonderry Duggan Shops Petrolia Mall Elmwood Shopping Centre Mayfield Food Market Avonmore Belmead Centre Thorncliffe Shopping Centre Primrose Lane Hillview Terrace Terwillegar Park Riverbend Shopping Centre Blue Quill Keheewin Shopping Centre

(123A Street and 161 Avenue) (179 Avenue and 91 Street) (127 Avenue and Hermitage Road) (144 Avenue and 77 Street) (40 Avenue and 106 Street) (40 Avenue and 114 Street) (83 Avenue and 167 Street) (109 Avenue and 161 Street) (73 Avenue and 78 Street) (89 Avenue and 182 Street) (82 Avenue and 175 Street) (84 Avenue and 182 Street) (Woodvale Road and 60 Street) (45 Avenue and Riverbend Road) (56 Avenue and Riverbend Road) (27 Avenue and Saddleback Road) (19 Avenue and 105 Street)

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All of the centres, with one exception, located on arterial roads were described as 'busy' in the survey of neighbourhood shopping centres. All of the centres which could be described as 'quiet' or which had several vacant units are located within the neighbourhoods and are served only by collector roads. Between these two extremes are other centre.: locatefi op collector roads which appear to be operating satisfactorily. Location of neighbourhood shopping centres is clearly an important factor in the success of the centres but other elements related to the characteristics and location of the neighbourhood and the commercial centre are also influential.

Businesses From the survey information a list of typical neighbourhood businesses emerged.

These uses are as follows: Convenience store Dry cleaners Hair salon Day care Gas bar and car wash Restaurant and/or fast food outlet Laundromat Medical and dental offices Video store Bank ) At larger centres Realtor ) only Drug store ) Bakeries are not common but were found in two older centres and in the Primrose Lane Centre. Likewise only one butcher's shop (at Petrolia Mall) and only two delicatessens were found as part of the survey.

Along major roads, neighbourhood centres are often associated with MacDonalds or Kentucky Fried Chicken outlets.

Specialized Stores In addition to the "standard" uses listed above, several neighbourhood shopping centres were found to include specialized stores. Such stores must depend on a market which is wider than the neighbourhood. The uses are as follows: Picture framing Computer store Sports store Fishing store Needlecraft store

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Page 4

(Avonmore, Blue Quill, Riverbend) (Clearwater Centre in Eaux Claires) (Clearwater Centre, Mill Creek Plaza) (Delwood) (Duggan Shops)

Physiotherapy clinic Ultrasound clinic Decorating centre Baby clothes and accessories Christmas shop and flowers Games store Orthopaedic shoe repairs Dance centre

(Tipaskan Centre and Elmwood Shopping Centre) (Primrose Lane) (Westbrooke and Terwillegar Park Shopping Centres) (Riverbend Shopping Centre) (Riverbend Shopping Centre) (Blue Quill) (Blue Quill) (Hillview Terrace)

Although some of these businesses are located within an area of the city whose population would use the stores, their customers are probably attracted from a wider area than the neighbourhood. Other businesses would depend on recommendation (or medical referrals) and would attract customers from across the city. Specialized businesses can locate in neighbourhood centres because people have greater mobility and are willing to travel beyond their own neighbourhood and community. The neighbourhood centres are away from major traffic routes, are less congested, and offer lower cost space than the regional malls.

Service Businesses Although service uses such as the dry cle7i 3rs, hair salon and laundromat have long been considered to be uses serving the local neighbourhood market, in recent years the number of service businesses and offices which have located in neighbourhood shopping centres has increased. Field research conducted in 1971 for a University of Alberta thesis' shows that, in a survey of 40 shopping centres, 48% of businesses were service businesses (including restaurants). The lists of businesses for the centres in the current survey have 66% in services (including restaurants). Most of the neighbourhood centres in the sample have a mix of uses. There is no exact correlation between age of centre and number of service businesses. Older centres may have experienced changes in their uses to service businesses if retail outlets were unsuccessful. However, two centres with the lowest percentage of service businesses are Duggan Shops and Londonderry Centre. These are older shopping centres, with a wider range of retail uses to meet residents' needs for essential items. They have retained their retail mix while other inner city centres have faced closures and have had to modify their uses and function. As people became more mobile and were attracted to shopping centres further from their homes, many local centres faced declining sales and business closures.

-Perceptual Variations of Retailing in Edmonton by Norman Alan Cook, University of Alberta, Department of Geography, 1972.

1

Page 5 •

Non-Essential and Luxury Goods and Services The emergence of video stores in neighbourhood shopping centres has occurred across all types of centre and in all areas of the city. Other non-essential uses may be present in selected areas. For example, personal services such as skin care, diet advice and toning and tanning studios are prevalent in the south western suburbs.

The south-west is also the more popular location for specialized stores such as decorating outlets, baby clothes and Christmas decorations.

2.3

Evolution of Neighbourhood Shopping Centres The neighbourhood shopping centre developed from small local stores and service businesses meeting the daily needs of neighbourhood residents. In the early days of Edmonton's development, commercial facilities grew up along the major traffic arteries, serving the neighbourhoods and also passing traffic. The streets were laid out in a grid pattern, so access to the major traffic routes was direct.

The grid pattern of street layout persisted until the 1950s when it was modified in some areas to create a more distinct neighbourhood unit within the major road network. Many of the streets were not continuous but blocks were off-set to reduce the number of direct routes through the neighbourhood. The central focus of the neighbourhood was the school and park area, often with an adjacent community league hall. Commercial sites were located at the corners of the neighbourhood. In certain neighbourhoods, eg. Mayfield, the central focus included a small shopping centre.

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C. ANDrt.10Tht. 4.)1,

Mayfield Food Mart

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Page 6

atgliraltniNANfrirtUrogr tYpej#14 FOOD NAFtii.,T

The 1967 General Municipal Plan did not include specific policies on the location of neighbourhood shopping centres but the Plan did recognize a hierarchy of shopping centres within which neighbourhood centres could be readily identified.

The characteristics of neighbourhood shopping centres are described as follows: "Neighbourhood shopping centres are used for convenience shopping and specialized personal services by nearby residents and passing motorists. Small centres generally include grocery stores, drug stores, a service station and other small shops. In common with larger planned shopping centres, off-street parking and offstreet loading facilities are provided. These centres may be under single or multiple ownership.

The most favourable locatiens are at intersections of arterial or collector streets on the periphery of a neighbourhood. The site areas are usually less than three acres with a floor space of up to 30,000 square feet. The trade area is approximately the neighbourhood in which the centre is located or a trade area population of 3,000 to 10,000 people."

The Plan discouraged scattered commercial development in favour of planned centres.

The next phase of suburban development, during the 1970s, had commercial facilities located as a central focus to the neighbourhood. In the outline plans produced in the 1960s and 70s, the neighbourhood shopping centre was located next to the school and park at the centre of the neighbourhood. This complex was to form a central neighbour- hood focus. The centres were to be located on collector roads, to provide good access and to minimize traffic movement through the neighbourhood. The intention was that a neighbourhood shopping centre would be within walking distance of all neighbourhood residents. In many areas, this concept was not successful as residents chose to drive for their local shopping trips. Extracts from a selection of area structure plans are included in Appendix H. In the 1980 General Municipal Plan, a neighbourhood was described as "an area representing approximately 1,000 to 2,000 homes and 4,000 to 6,000 people....

Neighbourhoods will also have a direct relationship to local commercial facilities."

An objective of the Plan was" to encourage the concentration of new suburban retail facilities in planned shopping centres and commercial districts." The Plan also directed that commercial sites should be on arterial or collector roads to prevent the generation of traffic on local streets. However, the Plan allowed general retail uses as discretionary uses in residential land use districts where establishments would be serving the daily shopping needs of residents of the immediate surrounding area (ie. neighbourhood shopping facilities).

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The 1990 General Municipal Plan includes policies related to the provision of neighbourhood services and facilities to serve residents' needs (Policies 2.8.2, 2.B.3 and 2.B.4). However, the Plan gives no detailed direction on the location or size of neighbourhood centres nor the population levels to be served. The current trend takes account of the tendency for people to drive to a shopping centre or to stop for daily needs on the way home from work. Interior sites are no longer considered commercially viable and neighbourhood centres are now being developed on the homeward side of the road at the junction of an arterial and a collector road.

Convenience stores are increasingly being developed in association with gas bars.

There may be more than one centre proposed for a neighbourhood; these are often small centres but with some duplication of uses. The usual pattern is for the neighbourhood to be in an advanced stage of development before commercial facilities are built but the pace of development has varied in different areas of the city. A neighbourhood centre may be planned in association with another use, such as a church. This has occurred particularly in the north-east where recent demand for commercial sites has been low.

3.

DISCUSSION In examining the role of neighbourhood commercial centres in the suburbs, it is useful to consider the relation of these centres to the urban system and its other components.

3.1

Emergence of Dispersed Shopping Patterns The original purpose of neighbourhood commercial centres was to satisfy the basic shopping and service needs of the neighbourhood population and, as a result, to minimize the number of shopping trips outside the neighbourhood.

Needs are determined by the demographic characteristics of the population and may be related to the age and structure of the neighbourhood. However, the effective demand for goods and services generated by neighbourhood needs has recently become more dispersed. Demands have been met by community shopping centres and other commercial developments outside the neighbourhood.

The dispersal process has been facilitated by increased personal mobility and changing employment patterns. The recent increase in women working outside the home has generated a market for goods and services at employment locations. A recent report in the Globe and Mail Report on Business described the results of a survey'. of spending by suburban industrial employees close to the workplace.

Retailers and developers are now favouring development locations near suburban employment centres or on the main routes leading to them. The survey found that because time available in two-income families for shopping has declined, shopping trips near the workplace account for almost a quarter of all spending on food, consumer goods and personal services by employees in suburban industrial areas.

Half of this spending is done on the trip home from work. The survey also found

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that retailers prefer to locate near industrial areas rather than in shopping malls close to residential neighbourhoods as rents for properties on industrial land are considerably lower than those in a shopping mall.

Lifestyle changes such as the increase in women's employment will have a great impact on the use of suburban neighbourhood shopping centres. The role of neighbourhood centres has changed and different uses have emerged as neighbourhood businesses. Travel patterns have become more complex as shopping trips have lost their relation to a hierarchical retail structure in which short journeys (including pedestrian trips) are made for basic, frequent shopping and longer trips to larger centres are made for comparison shopping for larger purchases.

Shopping now takes place in conjunction with other activities and these other activities may determine the shopping destination. Alternatively, people are prepared to travel further for their weekly (or less frequent) grocery shopping to take advantage of lower prices and to find a greater variety of goods than that offered by the older supermarkets. The food 'megastores' attract other retail outlets around them and offer a wide range of other goods themselves in an attempt to capture a higher share of shopping expenditure. The resulting 'one-stop shopping' is attractive to customers as a time-saver and draws more shopping revenue away from neighbourhood and community shopping centres.

3.2

The Impact on Neighbourhood Shopping Centres The current picture is one of neighbourhood shopping centres still adjusting to a changing role brought about by fundamental changes in shopping patterns. People have greater mobility; they are prepared to travel further for a greater range of basic goods and for lower prices; their time is limited and they seek to make the most efficient use of this time by making as many purchases as possible at one location.

In this context, it is difficult for neighbourhood centres to compete in the market for daily needs. Purchases within the neighbourhood will be for small scale 'emergency' needs; for goods and services for whizl. pzople do not wish to travel any distance (eg. dry cleaning); or for specialized i'Lems not available at large-scale standardized outlets. Even in those areas where there is a demand for local stores, the survival of small businesses such as supermarkets, butcher's shops, bakeries or hardware stores is threatened by city-wide changes in the retail structure and the ability of large-scale outlets (which are often part of a national chain) to offer lower prices and a wider range of merchandise. • The physical characteristics of neighbourhood shopping have changed in an effort to compete in the new retail system: • Neighbourhood commercial centres have located on arterial roads in an attempt to capture passing traffic.

Survey conducted by: John Winter Associates Ltd.

Page 9 •

• Layout changes have resulted in shopping centres which are oriented towards the arterial road instead of facing onto an interior parking area and being part of the neighbourhood. As centres have become smaller, the layout has reverted to an Lshape or a strip of units with parking in front.

• Design of neighbourhood centres has changed from a continuous flat facade to a design which identifies individual units. The aim is to improve the visibility of stores from the road, to attract more passing customers.

Individual units are identified in the design of new centres.

• There are more service businesses now locating in neighbourhood commercial centres and there is a greater variety of uses in the centres. However, the new businesses may not be related to neighbourhood needs and may attract customers from a wider area.

• Neighbourhood commercial centres have become oriented towards use of the car. Choice of location is based on the journey home from work and centres are away from other community uses or places of employment. The site plan and design of neighbourhood commercial centres encourage car use. They are usually single-storey buildings oriented around car parking and not protected from the weather. They are not designed to encourage walking around and there is often a need to drive between stores in the larger centres in bad weather.

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3.3

Service Businesses The recent trend of neighbourhood centres attracting service businesses is likely to continue as services become increasingly important in the urban economy. Neighbourhood retailing is expected to be replaced to a greater extent by service businesses. The services may not rely entirely on custom from the immediate neighbourhood but will select a location within a neighbourhood centre to avoid congestion and high rents. Demand for services within the neighbourhood will lead to a professional service function being an important component of neigh-bourhood centres. There are already several examples of doctors and other medical offices in neighbourhood centres, together with real estate offices and bank terminals. The occurrence of these uses is expected to increase and be complemented by such uses as lawyers' offices and personal or business services. The increase in people working from home is expected to generate an increase in demand foe service businesses and some types of retail outlets.

3.4

Community Activities Many activities which have a neighbourhood orientation and which bring people together at the local level are not commercial activities. A successful neighbourhood focus will include space for neighbourhood based community activities in addition to commercial outlets. Examples might include playschools, which may be commercial or which may be run on a co-operative basis; babysitting services; garage sales; exchanges (eg. sports equipment); recycling; opportunities for starting businesses; community services for seniors. Further study would be needed to determine a workable mix of uses and activities and to suggest a means of financing a centre which would include non-profit activities.

The Edmonton Public School Board is currently investigating the possibility of adding commercial uses and community activities to school sites. A mix of uses such as day cares, seniors' centres and small business development could be incorporated, to provide a mixed use neighbourhood focus.

3.5

The Effect of an Aging Population The prospect of more seniors and retired people living in the suburbs will likely bring about changes in the demands for goods and services emanating from the neighbourhood. The trend towards an older suburban population has already begun, with the emergence of new housing forms in retirement housing and 'mature communities.' Map 2 shows the distribution of people aged 65 and older. An older population will be less mobile than people of working age and is likely to generate an increased demand for local retail outlets and in particular, services. There will be a demand for a different type of neighbourhood centre. People will have more time for shopping, personal services and leisure activities. Health problems will become more important and there will be a demand for services which address these Page 11 •

PEOPLE AGED 65 and OLDER Edmonton, 1991

0 to 100

0' 100 to 300

VA ":%•:•••A

M:44 !:!:!:!:!:t

II

300 to 450 450 to 650 650 to 1450

* Area Excluded From Analysis

Source: 1991 Civic Census

MAP 2 •

needs. Social contact within the neighbourhood will be more important to older age groups as they will probably spend more time at home and will be concerned about security. The most appropriate neighbourhood centre to serve the needs of an older population could be one of mixed uses, including commercial retail and service outlets, space for community act;v4ies and opportunities for contact with neighbours (e.g., mail collection points, coffee shops, exercise facilities).

The potential for development of an older neighbourhood population is only one example of how a different neighbourhood demographic profile will generate new demands for neighbourhood services. By recognizing that a neighbourhood centre should be fulfilling the role of meeting these new needs, it is possible to anticipate changes in the provision of neighbourhood centres and in their design.

3.6

The Market and Neighbourhood Needs The significant elements of neighbourhood commercial centres which determine their function are size, location, design and the uses within the centre. In considering the link between the characteristics of the centre and the demographic profile and lifestyle of neighbourhood residents, the question can be raised as to whether the needs of the neighbourhood are being met through the operation of the market.

Commercial sites are being developed according to their favourable location on an arterial road. In addition to serving the adjacent neighbourhood, centres are designed to capture passing traffic. As a result, centres are oriented outwards from the neighbourhood, towards the arterial road. Ease of access from the road is an important factor and developers strive to make centres easily visible. Both these elements have an impact on the design of the centre.

Convenience store chains have recently become part of, or associated with, gas companies. Convenience stores and gas stations are now usually built together, with a distribution which is based on market competition and not on neighbourhood needs. Gas stations and other auto-related uses such as car washes do not need to be provided on a neighbourhood basis, as customers for these uses have maximum mobility. The adjacent neighbourhood does not benefit from an over-supply of autorelated uses. Other uses are often secondary to gas bar provision, suggesting that neighbourhood needs are not being met explicitly.

The tendency for specialized stores to locate in neighbourhood commercial centres is a further example of neighbourhood needs not being met directly, as specialized stores must serve a wide area. Another instance of the market not meeting needs is in the provision of standardized building units for neighbourhood shopping centres which are not functional for other uses.

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3.7

The Changing Role of Neighbourhood Commercial Centres Recent changes to improve the viability of neighbourhood commercial centres have accentuated the trend away from a neighbourhood focus. New commercial developments strive to capture passing traffic from arterial roads in addition to serving local residents. Competition between companies and the desire for visibility of national store chains have also become significant factors in the location of neighbourhood commercial facilities. If the previous role as the lowest order commercial centre meeting day-to-day needs of neigh-bourhood residents has declined, what is the new function of neighbourhood commercial centres?

A discussion of the function of neighbourhood commercial centres is part of the broader discussion on the neighbourhood focus. If a neighbourhood is to act as a recognizable unit with wh;ch i esidents can associate and which has an identity, then a focus is needed. Examples of a neighbourhood focus include neighbourhood shopping centres, schools, and recreation facilities.

The discussion above shows that a neighbourhood commercial centre no longer functions as a neighbourhood focus. An effective neighbourhood focus is a point of interaction for neighbourhood residents. The neighbourhood focus has to include activities which are best conducted at the neighbourhood level and which draw people together. A neighbourhood focus has a social or community aspect in addition to a physical presence. S. ',ce shopping and other commercially based activities are no longer conducted primarily at the neighbourhood level, other activities with a neighbourhood emphasis must be identified around which the neighbourhood should be designed. It is also important to recognize that the activities which bring people together will change as the neighbourhood ages. For example, recreation uses may be in greater demand among an older population.

Some commercial functions will continue to be needed at the neighbourhood level but a mixed-use centre, is more likely to meet neighbourhood needs successfully.

Typical commercial uses which may continue to be needed within the neighbourhood are, for example: Convenience stores Dry cleaners Hair salon In the new neighbourhoods, other uses may be important, eg. day care centres.

Neighbourhood commercial centres are currently designed as groups of standard retail units. Changes in design would be needed to provide more suitable space for service businesses and other uses. If service businesses increase, there may be more demand for second storey space and centres could be designed to cover a smaller area of land. There is potential for the development of more functional and adaptable space.

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3.7

The Changing Role of Neighbourhood Commercial Centres Recent changes to improve the viability of neighbourhood commercial centres have accentuated the trend away from a neighbourhood focus. New commercial developments strive to capture passing traffic from arterial roads in addition to serving local residents. Competition between companies and the desire for visibility of national store chains have also become significant factors in the location of neighbourhood commercial facilities. If the previous role as the lowest order commercial centre meeting day-to-day needs of neigh-bourhood residents has declined, what is the new function of neighbourhood commercial centres?

A discussion of the function of neighbourhood commercial centres is part of the broader discussion on the neighbourhood focus. If a neighbourhood is to act as a recognizable unit with wh;ch i esidents can associate and which has an identity, then a focus is needed. Examples of a neighbourhood focus include neighbourhood shopping centres, schools, and recreation facilities.

The discussion above shows that a neighbourhood commercial centre no longer functions as a neighbourhood focus. An effective neighbourhood focus is a point of interaction for neighbourhood residents. The neighbourhood focus has to include activities which are best conducted at the neighbourhood level and which draw people together. A neighbourhood focus has a social or community aspect in addition to a physical presence. S° -Ice shopping and other commercially based activities are no longer conducted primarily at the neighbourhood level, other activities with a neighbourhood emphasis must be identified around which the neighbourhood should be designed. It is also important to recognize that the activities which bring people together will change as the neighbourhood ages. For example, recreation uses may be in greater demand among an older population.

Some commercial functions will continue to be needed at the neighbourhood level but a mixed-use centre, is more likely to meet neighbourhood needs successfully.

Typical commercial uses which may continue to be needed within the neighbourhood are, for example: Convenience stores Dry cleaners Hair salon In the new neighbourhoods, other uses may be important, eg. day care centres.

Neighbourhood commercial centres are currently designed as groups of standard retail units. Changes in design would be needed to provide more suitable space for service businesses and other uses. If service businesses increase, there may be more demand for second storey space and centres could be designed to cover a smaller area of land. There is potential for the development of more functional and adaptable space.

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;i4Z);#3,/al PIM V33: VIMV '

Woodvale - single storey retail space.

Small scale local centres with a commercial component can still serve as a neighbourhood focus provided that they allow for a mix of uses and are designed with the flexibility to accommodate changes in uses as needs change. To serve as a true neighbourhood focus, such "local activity centres" should be physically oriented towards the neighbourhood and should accommodate activities which are carried out at the neighbourhood level. They should also allow social interaction and be designed so that a visit to these centres is a pleasant experience. These proposals assume that people still need the social context provided by the neighbourhood.

3.8

Regulatory Provisions In looking at the ability of the market to meet the shopping needs of neighbourhood residents, we must also examine the influence of development regulations on the operation of the market.

The number and location of neighbourhood commercial centres are determined as part of the neighbourhood structure plan approval process (Appendix II). As recent examples have shown, there is no firm basis for determining how many commercial centres should be located in a neighbourhood. Structure plans are submitted and may propose varying numbers of centres (Table 1). For example, in the Lewis Farms Area Structure Plan (adopted by City Council in June 1988) seven neighbourhood commercial sites and a community shopping centre are identified together with a proposal for convenience commercial facilities on approximately 0.25 to 0.50 hectares of land. Sites for convenience commercial facilities are not identified.

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TABLE 1: COMMERCIAL PROVISION IN RECENT AREA STRUCTURE PLANS

LEWIS FARMS'

OASIS WEST

THE MEADOWS

TWIN BROOKS

BIG LAKE

6,119

29,275 17,234 12,041

Population: Total Neighbourhood 1 Neighbourhood 2

30,108 3,092 1,818

17,287 3,323 4,529

51,060 6,924 8,478

Neighbourhood 3 Neighbourhood 4 Neighbourhood 5 Neighbourhood 6 Neighbourhood 7 Neighbourhood 7

4,737 1,866 3,523 3,642 5,366 6,604

4,650 4,784

9,408 5,726 5,930 7,448 7,146

Commercial Centres (# and area) (ha) District Centre

1 (10 ha)

Community Centre

1 (7 ha)

1 (6 ha)

1 (20 ha) 1(3.18 ha) 1(3.38 ha)

Neighbourhood Centres

6 x 0.7 ha) 1(1.0 ha)

1(3.02 ha) 1(0.80 ha) 1(2.09 ha) 1(1.20 ha)

1(1.00 ha) 1(0.70 ha) 1(0.80 ha) 1(2.90 ha) 1(1.50 ha)

1(0.45 ha) 1(0.61 ha)

1(2.5 ha) 1(1.0 ha)

Total Commercial Area

12.2 ha

23.19 ha

33.46 ha

1.06 ha

3.5 ha

Neighbourhood Commercial Area

5.2 ha

7.11 ha

6.90 ha

1.06 ha

3.5 ha

Neighbourhood Commercial Area per 1,000 Population

0.172

0.41

0.14

0.17

0.12

I 'Convenience commercial' sites (0.25 - 0.50 ha) will be allocated at the Neighbourhood Structure Plan Stage in Lewis Farms.

2

'Convenience commercial' sites not included.

•

These centres would serve daily needs whereas the neighbourhood centres are to serve weekly needs. This form of retail hierarchy would result in an intensive network of shopping centres serving the 30,000 population.

In comparison, the Oasis West Area Structure Plan proposes one district centre on five hectares of land plus three larger neighbourhood commercial centres to serve a population of 21,000.

An amendment was proposed for the approved Twin Brooks Neighbourhood Area Structure Plan which would increase the neighbourhood commercial centres from two to three. The amendment was not approved because two centres were considered enough to serve a population of 6,000.

However, there are no guidelines issued to the development industry on the provision of neighbourhood commercial sites in new areas; each structure plan submitted is reviewed on its individual merits.

Primrose Lane - the juxtaposition of residential and commercial uses.

The form and design of neighbourhood centres are regulated by the Land Use Bylaw.

The Neighbourhood Commercial (CNC) District provides for the development of neighbourhood shopping centres, which include convenience commercial and personal service uses intended to serve the day-to-day needs of residents. Recently a number of commercial centres have been developed under a direct control (DC5) land use district. The use of a direct control district illustrates the deficiency of the CNC district in accommodating all the components of a neighbourhood commercial centre which are currently demanded by the development industry. In particular, drive-through car-washes are not included in the uses which may be permitted within the CNC district. The use of a direct control district also allows the incompatibilities between residential and commercial uses to be mitigated but perhaps also allows a more permissive approach to be taken on the juxtaposition of different types of uses.

Page 15 •

4. CONCLUSIONS i)

Neighbourhood commercial centres have been overcome by changing retail trends and are no longer meeting neighbourhood shopping needs nor acting as the central focus of the neighbourhood. The retail hierarchy has been modified by changing shopping patterns. There is no clear distinction between types of shopping centres and goods purchased. The newer supermarkets have extended their opening hours which has probably had an impact on the market share of neighbourhood commercial centres.

ii)

Neighbourhood commercial centres are generally not a positive feature of new neighbourhoods. Many are designed to attract passing traffic and are not integrated into the neighbourhood. The increased mobility of people in some of the new areas means that they choose to shop elsewhere, leaving commercial units vacant. The shopping centres are not attractive to pedestrians and do not offer uses which create neighbourhood - based activities.

iii) While the function of neighbourhood commercial centres has changed, there is no updated policy framework to guide the provision of neighbourhood centres. The development industry has revised its basis for including commercial centres in new neighbourhoods but proposals continue to be assessed on an individual ba- with no guidelines for the provision of neighbourhood commercial sites. iv) The incidence of service uses in neighbourhood centres has increased in recent years. Uses are now less directly meeting the day-to-day needs of the neighbourhood residents. v)

The design of neighbourhood commercial centres is not flexible enough to allow a changing range of different uses in the neighbourhood. Most of the centres surveyed were made up of standard retail units.

vi) The changed function of neighbourhood commercial centres demands a change in the regulatory approach to dealing with new proposals. vii) The traditional neighbourhood commercial centre is no longer a viable form.

New types of centres are evolving which could be described as 'local activity centres.' These centres are small in scale and have a mix of uses. They are convenient to neighbourhood residents and allow personal contact, thereby encouraging a sense of community.

•

Page 16

APPENDICES

Page 17 •

APPENDIX I

LIST OF SAMPLE SHOPPING CENTRES

•

DeIton Square

8141 - 127 Avenue

Clearwater

15311 -97 Street

Terwillegar Heights Shopping Centre

14703 - 40 Avenue

Victoria Trail Shopping Centre

550 Clareview Road

De!wood Shopping Centre

13203 - 82 Street

Millcreek Plaza

4024 - 50 Street

Daly Grove Medi-Mall

4265 - 23 Avenue

Tipaskan

3206 - 82 Street

Westbrooke Shopping Centre

1A Fairway Drive, NW

Dunluce Square

12104 - 161 Avenue

Lakeview Plaza

9104 - 179 Avenue

Hermitage Road Shopping Centre

601 Hermitage Road

Londonderry

7640 - 144 Avenue

Duggan Shops

4027 - 106 Street

Petrolia Mall

4004- 114 Street

Elmwood Shopping Centre

16615 - 83 Avenue

Mayfield Food Market

15970 - 109 Avenue

Avonmore Centre

7804 - 73 Avenue

Be!mead Centre

18204 - 89 Avenue

Thorncliffe Shopping Centre

8202 - 175 Street

Primrose Lane

8404 - 182 Street

Hillview Terrace

301 Woodvale Road

Terwillegar Park Shopping Centre

14904 - 45 Avenue

Riverbend Shopping Centre

5603 Riverbend Road

Blue Quill Shopping Centre

348 Saddleback Road

Keheewin Shopping Centre

1903 - 105 Street

Page 18

APPENDIX II

EXTRACTS FROM OUTLINE PLANS AND AREA STRUCTURE PLANS

WEST JASPER PLACE OUTLINE PLAN, 1969 "It has been calculated that for a West Jasper Place population of approximately 69,000, and excluding one Public Elementary School and one Local Commercial Centre previously earmarked for Patricia Heights, there will be a need for the following facilities: Local Commercial Centres Service Stations Churches District Commercial Centre

5 12 to 14 8 to 10 1

In addition to retail shops, and perhaps some office accommodation, this Centre should also include: 1 Branch Library 1 Regional Health Clinic 1 Satellite Police Station 1 Fire Station 1 A.G.T. Telephone Exchange" "8.

Land use providing similar district services should be grouped together to provide district focal points both visually and functionally. These should be carefully related to both the footpath system and the road system.

9.

As a general rule, no one should live more than 10 to 15 minutes walk from local convenience shopping facilities."

"iii.

Land Use The overall land-use structure of the Scheme is a very simple one. Basically, the whole of the area has been divided into quadrants, each quadrant accommodating approximately 5,000 people. A combined park and school is located roughly in the geographical centre of each quadrant. Except where other conveniently located shopping facilities exist nearby, there is a small commercial complex adjacent to each school site. In other words, around the school site, a "node" has been created in which are located all the facilities which can be normally expected to serve the immediate residential population of about 5,000 people. In all cases the commercial centres have been located on the home-coming side of the street so as to avoid the congestion caused by a large number • of vehicles waiting ii the street to turn left into a shopping centre. The focus, then, of each residential quadrant of about 5,000 people is the park and elementary school site (and in certain cases a junior high school and separate school as well), often coupled with a fairly small commercial development."

Page 19 •

KASKITAY0 OUTLINE PLAN, 1970 "Neighbourhood Centres Commercial facilities at the neighbourhood level iuKaskitayo may be divided into two categories.

The first type is one which contains a large supermarket as the major tenant and serves approximately three to four neighbourhood units. These centres are best located in conjunction with a junior high school to form a neighbourhood core. The second type of neighbourhood centre is one containing a small grocery store and several other stores oriented to meet the day-to-day needs of local residents. These centres serve one neighbourhood and are best located in conjunction with an elementary school, again at the core of the neighbourhood. Site sizes for both types of neighbourhood centres should be carefully determined in relation to the market being served and the types of uses being accommodated. For all levels of commercial development great care should be taken to ensure that such centres are integrated visually and functionally with the residential area in which it is located. Access, screening, landscaping and general performance standards should be utilized to create compatible, harmonious development."

CASTLE DOWNS OUTLINE PLAN, JANUARY 1972 "Local Commercial The Plan recommends that local commercial centres be provided for each neighbourhood. These are to be located in the core area of each neighbourhood, (which contains in addition, the schools, parks, churches and multiple dwellings).

In determining the specific location of the local commercial centre, the criteria used should include; access to road of adequate capacity, relationship to bus route and bus stop, accessibility from various parts of the neighbourhood, and its design relationship to adjacent multiple dwellings.

An area of from two to three acres per neighbourhood has been specified in the plan. There may be some variation as the neighbourhoods are closer or further from the town centre.

The first area of development may justify a slightly expanded neighbourhood centre, since a considerable amount of housing will be constructed before the completion of the Town Centre Commercial."

RIVERBEND, TERWILLEGAR HEIGHTS DISTRICT OUTLINE PLAN, 1977 "Neighbourhood units are designed as somewhat unique and relatively self-contained units, intended to serve the immediate residential, educational, and commercial needs for a population of approximately 5,000 people. Although the neighbourhood densities range from an existing low of 10 people per gross acre to a proposed high of "30 plus' people per gross acre, the overall average neighbourhood density is approximately 24 people per gross acre. A neighbourhood unit occupies about 200 acres of land, and the walking distances involved are such that the area can be served efficiently by a single public elementary school, community league facility, passive recreational park, convenience store and local bus route. These amenities, along with the higher density residential nodes constitute a visual or symbolic focus, and may help to foster a sense of neighbourhood identity. •

Page 20

Within each neighbourhood, family housing is generally located at the centre, adjacent to school and park facilities. Higher density non-family types of accommodation is usually located further away from the school, adjacent to a commercial facility, transportation artery such as a bus stop or transit route, or a park facility. Although each neighbourhood will contain a relatively heterogeneous mix of socio-economic groups and dwelling types, the resident and dwelling type mix at the block level will be more homogeneous allowing easy integration and a minimum of conflict due to divergent lifestyles."

"TWIN BROOKS AREA STRUCTURE PLAN, MAY 1980 "2.2.3 Commercial Neighbourhood commercial facilities will be provided to serve the daily shopping needs of residents in the immediate area. This facility on a site of about 1 ha, should be located along the main entrance to the neigh-bourhoods and with good access from all areas.

The preferred location would be off the collector roadway near 111 Street as shown on Plate 6. The specific location and size of this facility for convenience type sale of goods and services will be defined at the neighbourhood plan stage. The main commercial area serving Ridgeview Estates will be the Kaskitayo Town Centre."

CASTLE DOWNS EXTENSION AREA STRU-7TURE PLAN, 1983 "2.

Commercial Two neighbourhood commercial sites and one community commercial site are included in the Plan. The neighbourhood sites will be a maximum 2 ha (5 ac) and with a building coverage of about 30%, a maximum ground floor building area would not exceed .6 ha (64500 sq. ft). This would generally allow adequate provision for parking and setbacks.

An estimate of the number of employees could range from 30 to 85 for each neighbourhood site depending upon the number and types of shops. Initially, a threshold population of 1000 families will be required to support the development of each site7. The rate of development of the neighbourhood centres will be dependent upon the rate of neighbourhood growth and market conditions." " As illustrated on the Development Concept, neighbourhood sites are located along collector roadways to minimize internal traffic movement through the neighbourhoods and to provide exposure, convenience and access. A more precise location for each neighbourhood commercial site will be determined at the Neighbourhood Structure Plan stage.

Page 21 •

A Community Commercial Centre site is proposed for the junction of 97 Street and the new collector.

The community shopping centre generally offers a range of goods and services that are often required on a convenience and weekly or twice weekly basis. The size range of this centre is usually 60-100,000 square feet (assuming a 90,000 sq. ft. centre at 30% coverage, the acreage requirement would be in the order of 9.0 acres) and is often anchored by a 10-20,000 square foot store. Other uses could include a butcher shop, bakery, fresh fruit and vegetable store, delicatessen, travel agency, restaurant and lounge, gas bar and service station facilities, bank and miscellaneous retail stores. The community centre generally needs a market population ranging from 10=20,000 people to support these various businesses."

'Urban Planning and Design Criteria J. DeChiara & L. Koppelman, 1978, p. 444.

• Page 22

APPENDIX III

DO SHOPPING CENTRES MEET NEEDS? Aldergrove Primrose Lane Shopping Centre The neighbourhood has a growing population with a high percentage of young children (10.8% of the population are pre-school children). The centre has many standard neighbourhood uses plus fast-food outlets, general and specialized medical facilities, a deli, bakery, dental office, pub and real estate office. The day care is a use which relates directly to the demographic profile of the neighbourhood.

Avonmore Avonmore is an established neighbourhood with a considerable retired population (24% of

total population). In addition to a beauty salon and convenience store (expected uses) the centre also has specialist stores (picture framing and an upholstering and sewing service).

The specialist stores are probably useful to the neighbourhood population but also rely on a wider area for all their customers.

Balwin Deiton Square Shopping Centre Balwin is an older neighbourhood with a declining population but a recent increase. Unemployment is high. There are few children.

There are no standard neighbourhood uses in the centre. There is an employment centre and agricultural employment services, tax services and a video games and billiards hall, all serving the needs of the unemployed population. Two fast food outlets cater to passing traffic. A physiotherapy clinic would also serve needs beyond the neighbourhood.

Belmead Beimead Centre

This centre serves a newer neighbourhood with a larger percentage of children. The playschool and day care are directly related to the neighbourhood demographic profile. The medical centre and pharmacy are also useful to the neighbourhood population. There is also a restaurant and fast-food outlet. The gas station, bank and video store probably serve the population beyond the neighbourhood.

Page 23 •

Blue Quill Blue Quill is a newer neighbourhood with a moderately high number of children but with a large proportion of single people also.

Some standard uses are repeated on opposite sides of the centre. There are six fast food outlets/ restaurants and a fitness centre, (perhaps catering to younger, single people). Two day cares help meet local child care needs. There is an art gallery which must berve a wider area.

Daly Grove Daly Grove - Medi Mall This is a new neighbourhood with an increasing population and many young children. The mall has mostly standard uses plus a veterinary clinic and pet food store and also services (travel agents, a law office, and a dental clinic). Only the day care is directly related to the demographic pattern.

Delwood Delwood has an older, declining population and slightly higher unemployment. There is one specialized store (fishing) and a convenience store.

Duggan This neighbourhood is starting to mature. The children are older. Population is still increasing steadily. The range of shops and services includes a barber shop, a needle work store, a soft drink store, also a flower and gift shop, in keeping with a more mature neighbourhood.

Dunluce Dunluce Square Shopping Centre Dunluce is a newer area with many young children (especially pre-school). The day care serves neighbourhood needs. Uses include a restaurant and pub.

Eaux Claires Clearwater Centre The neighbourhood is not fully developed. There are many young children and almost no retired people. Personal services (body toning and tanning salon), a computer store, and a sports store cater to younger age groups.

Elmwood Elmwood Shopping Centre Elmwood is an older neighbourhood. It has a moderate number of people and many long term residents. Population is declining. There are standard uses in the shopping centre except for a specialized medical business (physiotherapy). •

Page 24

Homesteader Hermitage Road Shopping Centre This shopping centre is in a young neighbourhood. There are many children (especially of school age). A gym and a day care reflect the age profile of the neighbourhood. There is also a dental clinic.

Recent business closures include a gourmet food store and a movie rental store. Other uses are standard.

Keheewin Keheewin Shopping Centre Keheewin is a new neighbourhood with a high percentage of children. The population has been increasing. A nursery school and day care serve neighbourhood needs. There is also a dental and medical office (a large amount of office/service space for a small centre). There is a restaurant and lounge. Other uses are standard.

Kernohan Population is stable. Children are older, of school age, but the area still supports a day care. Also in this centre is a dental clinic, a medical office, a pharmacy, a bank, a restaurant, a movie rental outlet and a fast food outlet. Other uses are standard.

Kilkenny Londonderry Shopping Centre Population is increasing. There are many children but more of school age. There is a high rate of unemployment A confectionery and bakery are located here, also a Safeway store, a bank, a drug store, Dairy Queen and restaurant. This centre has a more comprehensive range of uses to meet neighbourhood needs.

Lago Undo Lakeview Plaza Lago Lindo has an increasing population and a large number of pre-school children. There are very few unemployed or retired people. The day care and medical clinic are family-oriented services.

There is a church incorporated into the centre, plus a flower shop, restaurant and a video store.

Other uses are the standard ones.

Mayfield Mayfield Food Market Mayfield is an older inner city neighbourhood with a declining population and fewer children.

There is a high percentage of retired people living here and many long-term residents. There is a day care in the centre and a real estate office.

Page 25 •

Royal Gardens Petrolia Mall Royal Gardens is a 1960s neighbourhood. Now the population is declining and there are fewer children.

Petrolia Mall is a larger centre with a wide range of uses. The barber's shop and butcher's shop and Safeway are uses which were always expected in a local centre but which have recently not been located in neighbourhood centres.

Thorncliffe Thorncliffe Shopping Centre Thorncliffe is a new area with children predominating. The shopping centre includes a nursery and day care. There is a community-oriented use in the centre: the West Jasper Place Neighbourhoods Association.

Tipaskan This is a new area with steady population growth and a large percentage of children. The shopping centre includes medical and dental clinics.

Westbrooke Estates Westbrooke Shopping Centre Westbrooke is an adult community. It is a small neighbourhood. Some of the commercial centre uses are adult-oriented, eg. a decorating centre; insurance office, skin care salon, diet centre, a sports lounge and a tanning salon.

Whitemud This area includes part of Ramsay Heights, Brander Gardens and Rhatigan Ridge. The shopping centres are Terwillegar which has a decorating store a candy store and 'Tone and Tan'; Terwillegar Park Shopping Centre on Riverbend Road, which has a day care and kindergarten and a deli; and Riverbend Shopping Centre which has a baby clothes and accessories store, a pasta store, a day care, an art and framing shop and a flowers and Christmas shop as well as the more common neighbourhood businesses.

Woodvale Woodvale covers more than one neighbourhood. The area has, on average, a high proportion of children. The shopping centres include a day care, sports store, a toning and tanning salon (at Mill Creek Plaza) and a day care, dance centre, dental and medical offices, a pub and restaurants (at Hillview Terrace).

•

Page 26

PLANNING AND DEVELOPMENT DEPARTMENT

File: 207.01

May 5, 1992 To:

MEMORANDUM

Bruce Duncan General Manager Management Team

From:

Martin Kempton Manager Policy and Information Branch

Subject:

Suburban Neighbourhood Commercial Centres

The attached report by the Forecasting and Policy Development Group contains the findings from a survey of neighbourhood commercial centres. The project was undertaken to consider guidelines for new neighbourhood commercial centres as the General Municipal Plan contains no specific policies on commercial centre location or development. The report is intended for internal review and to generate discussion.

Several issues for discussion and possible further study have emerged during the work on neighbourhood commercial centres. These issues are attached. Would you please give these points your consideration. I would like these issues to act as a focus for discussions between your branch and staff in this section. We shall contact members of your branch to arrange a meeting to discuss the issues listed and any others which you consider pertinent.

If you have any questions about the attached report or suggestions for discussion items, please call Angela Hingston at 496-6061 or Heather McRae at 496-6059.

HC/AH/bv Attachment

ISSUES FOR DISCUSSION 1.

Policy guidelines are needed to deal with the appropriate number of commercial centres required to serve the neighbourhood population.

2.

Many retail outlets in neighbourhood centres would be better located in larger community level centres where they would have a larger catchment population and would benefit from proximity to larger stores.

Opportunities for one-stop shopping would be increased.

3.

Gas stations and other auto-related uses are incompatible with residential uses and are difficult to integrate successfully into the design of neighbourhood commercial centres. Gas stations and auto-related uses should be restricted to sites on arterial roads and their provision should be limited.

4.

Neighbourhood centres must have a social function if they are to be a successful neighbourhood focus. Activities which are conducted on a neighbourhood basis are becoming less commercially based. Provision must be made for mixed use centres encompassing a variety of activities, also allowing for a further increase in service businesses. An effective means of combining a commercial function with other activities needs to be found.

5.

The evolution of the centres in terms of changes in businesses, leading to the development of new profiles for neighbourhood centres should be examined. Opportunities for the revitalization of older centres should be generated through joint inner city planning initiatives, involving the Planning and Development Department and the private sector.

6.

The design of new neighbourhood centres should take into account: ▪ Orientation ▪ Size ami Parking ▪ Attractiveness for pedestrian use ▪ Relation to neighbourhood design mi Impact on adjacent residential properties