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STRATEGIES IN: IMPLEMENTING A DOWNTOWN. PEDESTRIAN MALL.

Rm .

Plan 3- Paper by Robert Ringelhem
Department of Urban Planning
Michigan State University

dune. 1977

CONTENTS

Title Page
INTRODUCTIONOOOOOOIOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOO 1
I. REVIVING MAIN STREET. UeSereeeeeeeeeeeeeeeeeeeeeeeeee 3

Hope for Downtown

Redevelopment and Urban Renewal
Towards a New Urban Consciousness
A New Planning Focus

110 PLANNING' OBJECTIVES AND counseeeeeeeeeeeeeeeeeeeeeeoe 9

Feasibility

Physical Planning Considerations
Improving the Urban Environment
Economic Considerations

III. ACTORS AND AGMTSOOOOOOOOOOOOOOOOOOOOOOOOOOOOOOCOOOI 19

Building the Mall

The Relationshig of Citizens and Government-Wooster. Ohio
Pedestrians as sers

Design Elements

Business and Government

The Role of the Planner

IV. EVALUATING PEDESTRIAN MALLSeeeeeeooeoeeeeeeeeeeeeeeee 33

Assets and Problems
The Minneapolis Experience
The Sacramento Experience

CONCLUSIONOOIOOOOOOOOOI...0..0.0.0...OOOOOOOOOOOOOOOOOOOO 39

“PWIXOOOOOOOOOOOOOCOOCOO...O.000.000.00.000...00...... ”'1

Pedestrian Mall Projects: A Management Outline

Pedestrian Mall Distribution by City Size

Mall Benefits Analysis Guide

Benefits of Malls

Structure and Composition of a Pedefihian Mall Management Body
Intercept Strategy

”Shopper's Paradise“, Springfield. Oregon

Myriad Gardens. Oklahoma City

Town Clock Plaza. Dubuque,Iowa

Existing Skyway System. Minneapolis

BIBLIOGRAPWOOOOIOO000.000.000.00OOCOCOOOOOOOOOOOO0...... 55

W.

The CBD, downtown. Main Street-call it what you may-has
often been neglected and even abandoned in cities of all sizes
during the past thirty years in the United States. “Main Street
has proved no more stable or invulnerable to change than any other
part of the urban environment. It has had its own life cycle.

In the 1950's. downtown declined. The suburban explosion and
the marketing revolution after World War II dealy it a lethal
Blow.'(fluxtable. p. 12) The.attracttve..enclosed suburban mall
replaced the downtown shopping district in terms of convenience.
appearance. accessibility and eventually. safety. Main Streets
throughout the country declined. but have not been givenzup in
most cities.

The pedestrian mall is just one of many innovative approaches
that are being used to revitalize Main Street. The pedestrian
mall is an attempt to bring back the human scale to the aging.
but still exciting and intriguing commercial center of the town
or city. The planning of the mall involves physical. social.
economic and political considerations. Various actors and agents
of change must be brought together in order to successfully imb
plement a pedestrian mall. “The Main Street renaissance is sig-
nificant in aesthetic and economic history. Its new vitality
can be looked on as a radical change in the American perception
of the urban scene. The shift to restoration came out of dis-
illusionment with the results of urban renewal. with its emphasis
on demolition and new construction. a growing awareness of the
effect of the loss of the past. combined with new approaches to
planning and to economic revitalization.“(Huxtable. p. 12)

Themes. such as historic preservation(Corning. New York)
or riverfront development(San Antonio. Texas) are incorporated
into the pedestrian mall. serving to link physical. social.
legal. and financial elements into a multi-faceted urban en-
vironment giving identification and a new life to downtown.

Some of the best known thematic retail centers include Ghirardelli

Square in San Francisco which was an old chocolate factory. the

-2-

Chattanooga Choc-Choc and Trolley Square in Salt Lake City. These
new developments draw inspiration from the former use of the structures
that are now utilised.

This is not merely a physical or economic renewal. however.
People are the main theme. by eliminating pedestrian-vehicle con-
flicts. congestion. noise and air pollution. while providing im-
aginative shops and design features to attract more people down-
town. pedestrian malls are helping to create a new kind of urban
renewal. For this reason. they are worthy of study.

This study of pedestrian malls will saplore many of the
concepts associated with downtown revitalization. The role of
the planner will be related to the development of the pedestrian
mall. These considerations will be analysed by integrating course
materials and concepts from the following courses:

U.P. “Bo-Historic Preservation
U.P. “90-Historic Preservation Planning
R.D. #60-Regional Economics

R.D. Biz-Public Direction of Land Use
UoP. BOO-Independent Study-CED Development

I

REVIVING MAIN STREET. U.S.A.

 

The background issues and problems must be considered inr
planning pedestrian malls. These basic concerns will be examined
in terms of the traditional context of urban renewal and in ex-

ploring alternative techniques for solving urban ills.

HOPE FOR DOWNTOWN

”Save our cities”. “Save our downtowns”.”Revitalise the
city core” are slogans heard in most cities of the world. In
some cases they are concretely expressed through “programs” like
slum clearance. urban redeve10pment. restoration. “pedestrian
precincts". traffic improvements. and so on. The special attention
which is being paid to the core is Justified by the preeminence
of its role. within the entire urban organism. It represents

its heart. its brain. its soul.‘(Gruen. p. 158) The major land.

marks and functions. indeed the 'image' of the entire city is
represented in the downtown core.’ The various functions that.
constitute a healthy core includes residences. government functions.
culture and art institutions. major business headquarters. and
retail establishments. All of these functions must relate and
interact to an extent determined by the character of the city.

The core exerts an attractive power that tends to draw
in and influence many peeple with its unique experiences. In
order to do this the downtown must relate to human functions through
public open spaces. be accessible from the rest of the city and
its region. and have suitable urban environmental quality. Cir-
culation. both vehicular and pedestrian. is a major concern that
_ must be examined in dealing with the preceding issues.

The emphasis on the automobile for transportation has
created several problems in dealing with the downtowns of cities.

More automobiles create more noise. pollution. and congestion.

-h-

thereby actually reducing accessibility to the downtown areas.
Automobiles also take up much valuable land in terms of roads
and parking lots. These out down on the possibilities of ped-
‘estriantsones of human interaction that help*to bring a more
pleasing-'human scale' to the city. Pedestrian malls are just
one method of alleviating these problems. Curing the problem
entirely will take a more comprehensive. coordinated approach
to redevelopment.

The fact is that we don't have to cater to the automobile.
thereby letting downtowns die of congestion. pollution and lack
of human activities. Pedestrian malls can be a major element
in the revitalization of many downtowns across the country. 'At
a time when environmental restrictions and sewer moratoria are
removing much buildable land from the market and when sensible
growth has become the builder's defense against no growth. the

reassessment of sites once considered marginal or even risky is
in order.“(NAHB Journal. p. 16)

REDEVELOPMENT AND URBAN RENEWAL

Redevelopment efforts today can be directly traced back
to the urban renewal programs of the 1950's. The Federal Housing
Act of 19h9 first noted the redevelOpment of communities as the
final product in the provision of a decent home for every American
family. The 195% Housing Act went further. detailing programs
for slum clearance and the rehabilitation of neighborhoods. The
idea of urban renewal focused on physical renewal. In the 1950's.
old structures and residences in central cities were rated and
new gleaming office buildings and parking ramps were erected as
a 'lasting monument' to this program.

The goal of urban renewal was never clearly understood by
the officials and planners who acted on it. ”I think it is true

to say that most of the people concerned with urban renewal did
not interpret it as an opportunity for creating a better way of

-5-

life. but mainly as the necessity for creating a better urban
environment. In short. there was no clear conception of a way

of urban life that could be achieved through a good urban renewal
program.'(Doxiades. P. 9) There were few attempts at coordinating
the various elements of the physical envirnmment with the human
needs of the citizens. Comprehensive planning focused on physical
renewal and economic revitalization as the immediate. short-range
goal. Indeed. most renewal programs were of a limitedrfocne'in

a non-systemic. broad manner. The results can be viewed today

in many cities as disappointing. alienating 'projects'. garages.
and empty lots. The physical elements and forms were merely re-
arranged. but they were not a real solution.

The last 30 years have seen great changes in the development
patterns of cities. ’Natural' renewal processes where each person
'could rebuild his own shOp or home can no longer work. With only
a short thee frame to work in. planners and other concerned pro-
fessionals have had to take on the burden of urban renewal with-
out the benefit of previous experience. Public involvement has
become necessary due to the scale of the problem. The need for
planned urban renewal has become apparent in American cities.
Whole sections of the city are deteriorating and no longer use-
ful in their present form. and the current owners can't afford
to rebuild each individual structure. A coordinated effort is
now necessary in any revitalization scheme.

. Coordinated downtown redevelopment is now taking the form
of planned downtown ’complexes'. covering large blocks of land.
The Fort Worth. Texas Plan was one of the early prominent pro-
posals put forth in attempting comprehensive downtown redevelop-

ment. Other schemes have centered on 'new towns in town’. multi-

use complexes. historic preservation strategies and pedestrian

-6-

malls. All these recent innovations in redevelOpment have tried
to bring new investment back to the CBD. improve circulation and
accessibility and bring back the people who make downtown a vibrant

place.

TOWARDS A NEW URBAN CONSCIOUSNESS

By merely relying on physical renewal. however. planners
really can't get at the heart of the problem. The roots of urban
blight and deterioration of the CBD deal with the dynamic aspects
of the city. “If we take into consideration that the obsolescence
of buildings is due not only to age but also to the changing structure
of the city. and that structural changes in cities are going to -
increase enormously. we may reach the conclusion that. in spite
of our efforts. it may take hundreds of years to eliminate the
obsolete buildings.'(Doxiades. p. 23)' .

The recycling of buildings and other physical elements in
the city is starting to play an increasingly important role hm
redevelopment. As downtowns and neighborhoods change in their
character. the old structures and infrastructure may be reworked
into the new urban environment. The fact is that cities are con-
stantly undergoing change in form and structure. New methods
and goals for meeting human needs and improving the urban environ-
ment must be met. But. planners have been amiss in trying to
meet these needs. New roads. parking facilities and hi-rise
developments have been a common ’cure’ for downtowns. These
solutions merely accomodate the very causes of the problems.
but neglect the features that make the city worth living in.

The revival of Main Street as a viable commercial center
is. in part. a reflection that keeping up with the times by using
siding and neon lights can’t compete with the modern shopping
malls in suburbia. The link between the past and present is

missing in these garish developments. ”At some point the real-
isation dawned that one self image simply couldn't be sustained

-7-

in collision with the other. Both were equally American but one
carried with it physical manifestations(highways. suburban sprawl.
buildings whose forms were generated by most commonplace functional
and economic determinants) that became less appealing as the man-
ifestations of the other landscape started to disappear. Disen¢
chantment with the ever-discriminating reality and the gradual
.destruction of the myth of modernity reinforced the longing for
the lost American past. Before too long the public would be res-
ponding to a nostalgie de la rue.”(Progressive Architecture. p. 70)
Historic preservation has been linked with commercial redevelop-
ment. especially in smaller towns. as a desire to restore an area
of the town or city that would be associated with the romantic.
past. giving a special character to these areas. In bigger cities.
such as Boston and New York. historic structures are utilized as
key elements in downtown renewal areas. linking past and present
cityscapes through design treatment.

This theme of restoration and redevelOpment has proved profit-
able and aesthetically pleasing in many towns and cities. This
is helping to promote new values of conservation and recycling.
important in these times of energy and material shortages. What
we really have is a rediscovery of the streetscape that provides
a sense of place and identity. The pedestrian mall can involve
different design aspects and include many different strategies
for redevelopment. but they do serve a unique purpose: they serve

to focus attention on the historic center of urban life.

A NEW PLANNING FOCUS
The pedestrian mall provides both beauty and utility to
downtown. Good planning and design considerations can create
an attractive downtown for businesses. government and people.
Whether the mall is for tourists or residents. containr’people
movers' or more conventional mass transit. the pedestrian mall
can act as a highly visible symbol of action that would attract

more redevelopment spin-off effects. Perhaps more importantly.

-8-

it can provide an identity and a new life to downtown.

is cities try to create the positive features of urban life
from an earlier era. different schemes are being attempted.
“Specifically. cities are attempting to:

1. Rehabilitate the downtown and restore its economic. cultural.

and residential importance.

2. Restore the city“ 8 economic base lost to the suburbs.

3. Revitalize neighborhood structures and life.“(Goldfield. pp. 76-7)
The pedestrian mall is one of the tools being used in downtown
revitalization that is attempting to realize these goals. Various
aSpects of the pedestrian mall will be discussed further in the

following chapters.

-8-

it can provide an identity and a new life to downtown.

As cities try to create the positive features of urban life
from an earlier era. different schemes are being attempted.
“Specifically. cities are attempting to:

1. Rehabilitate the downtown and restore its economic. cultural.

and residential importance.

2. Restore the city's economic base lost to the suburbs.

3. Revitalize neighborhood structures and life.”(Goldfield. pp. 76-7)
The pedestrian mall is one of the tools being used in downtown
revitalization that is attempting to realize these goals. Various
aspects of the pedestrian mail will be discussed further in the

following chapters.

II

PLANNING OBJECTIVES AND GOALS

d__;.There are many questions to consider when initiating and
implementing a pedestrian mall. The overall feasibility must
be considered in terms of a set of priorities that have been pre-
determined. This section presents an analysis of some of the

major considerations involved in setting goals and objectives.
FEASIBILITY

It must be noted at the outset that every city is different
in terms of physical. social. and economic characteristics. This
is most noticeable in the downtown or ’Main Street' commercial
area and surrounding blocks. Therefore. no single approach to
any two different situations will produce the same desired results.
‘ Feasibilityis a key concept. .The mall must be economically.
functionally. and politically feasible before development can
proceed. 'Feasibility is actually asking if the downtown will
function better with a mall than without one. This includes
early identification of the elements that will be needed to im-
plement the pedestrian mall. Feasibility must be determined for
each city's situation. there is no direct comparison method that
is totally accurate between cities. “That is not to say these
functions can‘t be studied. analysed. understood and results fore-
cast with reasonable precision. They can. But the reliance is
on rigorous work by knowledgeable people focusing on under-
standing the uni ue qualities that make each downtown a ”one and
only” creature.“ Alexander. vol. 2. p. 6)

Basically. economic feasibility will determine whether the
mall will be an asset or liability to the community. “Shopper's
Paradise" was a pedestrian mall in Springfield. Oregon in 1956-59.
A study by Donald Lutes and John Amundson. Jr.. planning consul-

tants. had shown that Springfield's commercial activities were

010-

were failing to a large extent. There were lower per capita dollar
expenditures compared with nearby Eugene and the comparative dollar
volume of sales was only twoathirds of that of Oregon cities of
comparable size. The number of store vacancies was increasing
and merchants were pessimistic about the future of the commercial
district. The pedestrian mall was regarded as economically feasible
based on the amount of money needed to fund mall improvements
compared with the returns on investment. Basically. starting
as an experiment. “Shopper's Paradise“ proved quite successful
in restoring the vitality of the Springfield CBD.(See Appendix)
Projections must be made with a mall and without one. Impacts
must be determined for employment. land use spending. taxes and
spin-offs. These effects must also be balanced with aesthetic
considerations.- A reasonable level of expenditure will incorporate
a profit for businessmen and local residents in terms of increased
revenues and a better quality of life. an elusive aspect at best.
Functional feasibility deals with whether the mall really
is practical from a physical standpoint. Land and space use around
the mall are basic considerations.. The intensity of different
types of uses. such as banking and retailing. is also important.
Usually more value per dollar is spent in high-intensity areas.
These factors must also be balanced with daily operations such
as transportation. circulation. services and utilities. If handled
well. costs for these additional elements may be held to a min-
imum. .
Finally..the mall must be politically feasible. Government.
citizen and special interest groups must be weighed for support
in advance. If the feasibility is good. then it is possible to

use it as the foundation for a positive political base.

'PHYSICAL PLANNING CONSIDERATIONS

“The physical layout and servicing of pedestrian improve-
ments in central business districts is about the best place to
begin a discussion of mall. semi-mall and transitway feasibility
because the physical planning of these types of improvements in
terms of layout and servicing is one of the most basic feasibility
concerns.

In reality. only after it can be demonstrated that a particular
project area can physically accomodate one of the types of improve-
ments. should the other types of feasibility studies be moved on
to...“(Erikson. p. 20) The full mall or pedestrian mall is char-
acterized by a total closing of a street to normal vehicular
traffic. Only emergency and service vehicle access may be provided.
The semi-mall involves the sharing of a common right-cf-way be-
tween motor vehicles and pedestrians. It usually has wide side-
walks. tree plantings and seating areas. A transitway is really
a semiemall through which only mass transit vehicles are allowed
to move along with pedestrians.

Several factors will help determine which type of mall.-
if any. will actually work best within the physical framework.
Location and purpose are interrelated. greatly depending on scale
or what is needed. Other aspects include servicing. pedestrian
activity. existing and proposed development. weather and building
heights. When one of these critical factors is overlooked. the
results don't reflect the purpose of the mall.

There are several principles that can aid in planning ped-
estrian malls. “Downtown is primarily an area where people move
about by foot. It is important that these pedestrian trips can
be made safely. easily and conveniently. The underlying objectives
are to increase the accessibility. amenity and vitality of the
city centerbto facilitate the interchange of people. ideas and
commerce. It is within this context that downtown malls must
be planned. built and assessed."(Levinson. p. 10) It is now a
time of rethinking our priorities. The energy shortage. environ-
mental issues and economic problems have all forced us to re-emphasize

the pedestrian and the human scale in our downtowns. Separation

-12-

of vehicular and pedestrian movement conflicts can tie in with
open spaces. transportation facilities and more innovative plan-
' ning tachniques. Often. pedestrian malls are beginning to in-

corporate plazas. skywalks and arcades as part of their design.

IMPROVING THE URBAN ENVIRONMENT

The main thrust of reviving downtowns by pedestrian malls
has been to provide“...a more competitive. convenient and inviting
context...the most successful renovation is carried out within
the framework of a larger. more comprehensive renewal plan that
links economic revitalization to an improvement in the quality
of the environment. Restoration is now balanced with new construction
and circulation and open space patterns in programs of increasingly
sophisticated and successful interrelationships.“(Huxtable. p. 13)
An urban environment that makes use of its assets provides an
attractive. exciting backdrop for revitalization. Old buildings
and features may be restored in contrast to complementary new
styles of architecture. This provides a visual link between the
past. present and future. This is often lacking in the clearance
projects that emphasize new. impersonal structures. People are
more involved with their environment when the landscape is varied
within a set of design constraints that work together. Many
pedestrian malls have included historic structures. 'thematic'
orientation or natural features such as riverfront parks that
link economic. physical and social elements of downtown improvements.
The aim of reviving the downtown commercial areas of towns
and cities is multi-faceted. The mall is not intended an 'enclave'.
but as an activity generator. It is supposed to restore the physical.
economic and social forces in the city. reaching beyond the in.
mediate physical limitations of the mall boundaries. The ends

are mutually beneficial to the businessmen. preservationists.

planners. politicians and citizens. Resources can be marshalled

-13-

to re-establish the viability of a downtown commercial commercial
center that can effectively compete with suburban malls. The
carefully planned and designed pedestrian mall will deal with
underlying economic issues of central city decline while spin-
ning off improvements to the other functioning elements. such

as transportation. circulation and environmental quality.
ECONOMIC CONSIDERATIONS

“The long ran e goal of revitalization is to attract new
investment into theIurban) neighborhood in the form of upgraded
businesses. expanded store mix and product lines. imaginative
reuse of older buildings. and other forms of new development.“
(Goldstein. p. 33) It deals with the many factors causing decay
and relating to the viability of the commercial area. It also

—-dsals with the various actors who must coOperate. Finally. there
is a sequence to the process of revitalization.

One should recognize that the viability of the commercial
area is tied to the economic feasibility. New investment into
the older downtowns is needed to stimulate revitalization as well
as job opportunities and increased income.

In this regard there are several conditions that must exist
at any location for reinvestment to occur. These include a market
for the goods or services. merchants with a proven track record.
an attractive business environment(economically. physically and
psychologically) and readily available financing with attractive
terms. A central focus for revitalization is a prime consideration.
A pedestrian mall. or any of its variants. offers such a concentration
of activities which can begin to meet these requirements. A good
store mix. adequate parking. safety and aesthetic considerations
are all important considerations in planning pedestrian malls.

A committment by the city to provide certain financial incentives

for infrastructure and financing will tend to attract more invest-

-1“.

ment than scattered. strip developments.

Mr. Benjamin Goldstein. Chairman of the National Urban Dev-
elopment Services Corporation. has worked out an outline for com-
mercial revitalization in urban neighborhoods. It provides a
set of guidelines for redevelopment of these commercial areas.
There are three major phases. l-early planning and organization
which deals with organizing the various community organizations.
decision makers and businessmen. providing a market analysis. in-
ventory the physical condition of the target area and identify
the financial mechanisms: 2~project identification and definition
which will identify. define and schedule specific public improve-
ments and private development projects as well as identifying
the preconditions required before any new development can take
place. and 3-project implementation which carries out the projects
previously defined. '

Once feasibility is proved._a concept plan outlined and
committment from all sectors strong. then funding becomes the
main consideration. Many funding sources are available from the
public and private sectors.

Starting with Federal sources. the Community Development
block grants are currently the most important means of funding.
They are provided to those eligible cities and matching funds
are not required. They come in limited amounts that must be
divided among all sections of the city. so it is important to
have good arguments for their allocation. These funds”...can
be used for activities such as property acquisition and clearance.
construction of public facilities. preservation of historic sites.
and practically any other activity with a public or community
interest."(Goldstein. p. 36)

The Economic Development Administration Public Works Grants

are a potential source of funding on a non-continuing basis.

-15.

These monies can be used for providing jobs in an area of high
unemployment. The actual physical improvements associated with
the mall may supply the eligible jobs.

The Department of Transportation and the Urban Mass Transit
Administration also provide money for research and planning projects
involving pedestrian circulation improvements and public trans-
—portatien as impacted by pedestrian malls.

The Department of the Interior has a program providing 50
per cent of the cost of building parks and other open spaces that
may be connected with the mall. As part of an in-city park scheme.
the pedestrian mall would be eligible for Bureau of Outddor Rec-
reation funding. Matching funds are required from the city. The
Nicollet Mall in Minneapolis utilized a $h83.000 urban beautification
grant from the federal government providing for aesthetic im-
provements.

Past federal programsesuch as Urban Renewal and Model Cities
still have unspent money for already approved projects which may
be incorporated into the mall. The urban renewal and code en.
forcement projects in East Baltimore are just such an example.

This project was started in 1966. in an area adjacent to Old

Town. a declining commercial district. In 1968. the Department

of Housing and Community Development agency of Baltimore began
planning to implement the urban renewal project in order to re-
develop New Town and the surrounding neighborhood. A pedestrian
mall was seen as a viable option. incorporating the narrow streets.
off-street parking and facade restoration program as key elements.
Small Business Administration Section 502 Local Development Loans
were the other funding source. These low interest. federal loans
are targeted to specific. identifiable neighborhoods in cities

of 25.000 or more people. Loans are made to state and local dev-

-16-

elopment companies to assist specific small businesses in con-
struction. modernization or conversion of existing small businesses.
This is part of a pilot program with the Small Business Administration
through a joint contact with the National Development Council
and the National Center for Urban Ethnic Affairs. Other participat-
ing cities include New York. Philadelphia and Pittsburgh. Denver.
Cleveland. San Francisco/Oakland. Chicago. St. Louis and Indian-
apolis. -

Federal Revenue Sharing is another potential source of aid
to municipalities that can be used for various aspects of mall
development.

State matching funds are available for assisting communities
in many areas of development and activities that can be related
to the mall.

Local funding involves many traditional and innovative measures.
The approach taken to funding will depend on the nature of the
particular'aall and the city involved. Special assessments can
be levied in the form of a tax against downtown property owners
over a period of years to pay for mall improvements. “In very
broad terms. the total costs-or any part thereof-of the construction
project is divided among the abutted properties which pay these
off over a specified period of years. Practically. what happens
is that the city issues a bond to cover the cost of this work
and the properties in the assessment district pay off the interest
and principal on an annual basis. In this. the costs are borne
by those who will benefit from the work and general taxpayer is
not required to make any contribution to this project.“(Heller.
vol. 2. p. 37) This is an equitable way of financing and is
permitted by most enabling legislation. A good example would
be a parking ramp constructed for nearby merchants in order to
serve public off-street parking requirements for the commercial
district.

Voluntary assessments by downtown merchants and property

owners may also be raised. if feasible. This is most probable

where costs are not too high. Freeport. Illinois used this method

.17.

to raise $120.000. Fifty percent of the project cost came from
voluntary assessments of immediately adjacent property owners
(based on.the.assessed valuation of their properties). An add-
itional 25% of the project cost was from voluntary assessments

of the adjacent property owners. The final 25% came primarily
from downtown businesses outside the immediate mall area. Assess-
ments are advantageous as they provide for the funding of contin-
ued maintenance and spreading out payments over a long time. A
handicap is that the city must cover an initial bond on its debt
capacity. But this route is often considered the most workable
method of financing major downtown improvements.,such as malls.

The Special Service Area Tax is a new tool. enacted in the
village of Oak Park. Illinois. A special taxing district was
created in the downtown area that pays for the mall or retires
bonds sold to pay for mall construction or maintenance. .

Bonds can be sold to generate funds. ‘There are two basic
types. General obligation bonds obligate the city to borrow
for mall construction. while revenue bonds obligate private bus-
inesses to repay the cost of the project. such as a new parking
facility.

Conventional financing involves bank loans for renovation.
inventory. fixtures and working capital. Local development corp-
orations and small business investment corporations also are sources
of loans. Long term and short term loans can be provided depend-
ing on credit ratings and interest rates.

Taxing mechanisms are the final major method of financing~
pedestrian malls and related improvements. Tax abatement can
exempt certain development projects from all or part of their

property tax liability. especially during construction and the

initial years of operation. Tax increment financing involves

-18-

selling bonds by a municipality for new development and then is
repaid by an incremental increase in property taxes that result
from the development activity. However. this is risky since there
may be no dramatic increase in tax revenues(or even a decrease)
and the bonds won't be able to be retired. There is also tax
exempt financing which provides low interest financing with no
federal income taxes. while still having a high yield on investment.
Other methods of financing downtown revitalization projects
are constantly being explored. Often. a combination of private
and public funding sources works well and is encouraged in many
cases. Again. specific combinations of funding sources will
depend on the city and the situation.’ Innovation is encouraged

where possible.

III
ACTORS AND AGENTS

Any successful redevelopment project requires the collabor-
ation of economists. real estate developers. planners. architects.
politicians and citizens. The pedestrian mall is no exception.

All those involved in the development and execution of a pedestrian
mall must share common goals and objectives in wanting to save

the downtown commercial district. Coordination and interaction
prove most valuable as noted in the literature. The role of

these various actors and agents will now be examined in terms

of the successful development of pedestrian malls.

BUILDING THE MALL

Of all the various people involved inithe process of creating
the pedestrian mall. many will serve in key roles. But. it is
most crucial that the individuals and special interest groups
involved communicate their ideas and work together. Support for
the mall must' come from the political. business and community
sectors backed by the feasibility study.

Timing must be considered. If the project is seen as a
rallying point to“save the city”. then more people will get in-
volved. Delays must not hold back the project unnecessarily.
since costs will rise and interest wane as a result. Logical
staging of the project can effectively achieve the desired results.

'An outline for creating the mall might start with the feasibility
study and any related data gathering as done by either the plan-
ning department or other affected parties.

Key members of the community must then agree with the con-

cept for the deveIOpment to proceed.

\

I."'.\.

A design team must then be selected. The best design will
reflect the goals initially set forth. The planner. architect
and landscape architect should resolve aesthetic considerations
as balanced with the needs of the businessmen.

Financing then is the last major step before construction.
A mixture of public and private funding sources often proves most
valuable. These sources have been alluded to previously in this
report.-

It is the interrelationships of the various parties involved
that provides the most accurate insights into the process for
creating a mall. These will be further analyzed in the following

pages.
THE RELATIONSHIP OF CITIZENS AND GOVERNMENTi-WOOSTER. OHIO

Positive citizen participation with government leadership
is almost universally encouraged in undertaking a mall project.

“Mary Means. Regional Director of the Midwest Office of the
National Trust for Historic Preservation. stresses the need for
a local citizen's group to take the initiative and sustain it.
The town should also have a strong economy. she points out. with
municipal encouragement in the form of sensible codes. taxes

and financing of public improvements. And it helps to have a
downtown core with a unified physical fabric worth saving."

‘(Progressive Architecture. p. 74) By creating an intensive public

awareness for the heritage and assets of the downtown area. the
prospects of support for the mall increase.

The city of Wooster. Ohio srves as a positive example of
citizen-government cooperation. Wooster is a regional center
for four counties with a collective population of over 285.000.
Suburban shopping centers were drawing businesses from the CBD
and the future of the downtown businesses was not regarded as
Optimistic in most instances.

The Wooster Shade Tree Commission made a first proposal

-21.

for a study on the appearance of the downtown area relating to
landscaping. This was envisioned as a first step in revitalizing
the CBD by creating a central meeting place. An outside consult-
ant's study indicated massive changes and high costs. scaring
off many people. The project was set aside. but the stage was
set for more proposals.

In the second phase. an urban renewal project was passed
by the mayor and the city council. The mall was revived in regard
to possible non-cash credits for its construction which could
be included in the urban renewal project. This meant that the
mall itself could benefit from the related urban renewal activities
tn a spin-off effect. The Chamber of Commerce Retail Division
initiated a new plan to include a central meeting place of fountains.
benches and landscaping to occupy former on-street parking areas
in the downtown. . .

A parking deck was proposed to replace the parking taken
over by the mall. The first floor of the new parking deck was
to include commercial space to accomodate several businesses that
would need relocating. The parking section involved the Retail
Merchants of the Chamber of Commerce and the City Parking Comm-
ission. The city's Urban Renewal Division. city planners. the
city administration and affected merchants were involved in the
relocation aspect.

Citizen involvement must be emphasized. Interaction between
citizens. planners. city officials and developers kept the project
from being blocked due to competing interests. The success of
the project has depended on the involvement of all these people
and community boards at the right time. in the right place. Co-
operation was the key to success in Wooster in the implementation

of the semi-mall and parking deck.

-22..

However. this situation is certainly not true in all cases.
In fact. many citizens groups have been battling city hall in
recent years due to new development threatening residential and
historic areas of the city. City officials are. after all. re-
sponsible for the 'dirty work' of development(housing inspections.
creation and approval of a Master Plan. and zoning as well as
granting variances). So. it is easy to see where municipal re-
sponsibility for planning can lead to citizen hostility when the

goals of these two groups are at odds with each other.

PEDESTRIANS AS USERS

The pedestrian city is based on an image. The man inwthe
street in the crowded downtown views his environment differently
than a truck driver or an automobile driver passing by. The ped-
estrian is involved with his surroundings directly. The fact‘
that the pedestrian is an important link in the urban environment
is often lost in the scale and nature of modern architecture in
the CBD.

The traffic system is most flexible in terms of giving more
space to the pedestrian without losing space for commerce. Autos
can be excluded from a section of downtown. while accomodating
the pedestrian by providing mass transit to move people to and
from this area. This flexibility is the key to the remaking of
a habitable human environment. We can give the citizen a place
in the city where he feels neither Oppressed nor alienated. Creating
a pedestrian mall is an opportunity to use this flexibility.

The EurOpean experience shows many cities with their historic
central districts free of autos for years while restricting new

building to outlying districts. A marked rise intretail spending

.in traffic-free zones has resulted.

-23-

Florence has banned autos from a #0-block “blue zone" in
the city center. Merchants initially opposed to the project
are now trying to get included. The creation of an'Environmental
Oasis"in the city center of Vienna has led to more pedestrian
use by allowing only mass transit. emergency and service vehicles.
“...During the first week of a traffic ban in Vienna. shops re-
ported sales rises ranging from 25 to 50 per cent. In Essen.
sales increased between 15 and 35 per cent. and in Rouen. they
rose 10 to 15 per cent. In fact. as long as there is adequate
parking and public transportation nearby. it seems that most
people would rather do their shopping in carfree streets.'(Klein
and Arensberg. p. 123)

The Cologne pedestrian network is an irregular network of
intersecting pedestrian streets. fountains. trees. arcades. and
kiosks. Parking garages are nearby for access from outlying areas
and buildings are restricted in height to four stories along the
walkway. Funding was by the city and the merchants. who eventually
began to favor the project after initial concern.'

In the United States. the incidence of pedestrian zones
or malls in downtown areas is less than in Europe. so far. but
where it has been done there has been general contentment. Retail
sales shot up from 1# to 35 per cent after completion of the
pedestrian malls in Kalamazoo. Providence and Minneapolis. This
indicates increased interest in sh0pping downtown. The downtown
pedestrian.mall is creating an attractive alternative to the sub-
urban mall.

Myriad Gardens is a complex development scheme in Oklahoma
City. Oklahoma. It is marked by a distinct pedestrian district
with many diverse activities such as art and service exhibit areas.
a sports museum. a library. shops and restaurants. It is all
contained in a 33-acre park setting to be fully landscaped and
integrated into other adjacent downtown elements. It contains

many elements of. but is not. a full pedestrian mall since it

was developed as one unit.(See Appendix)

Trenton Commons is a more modest scheme. It proposes a
pedestrian mall with arcades. widened sidewalks. and a public
square design. It has convenience. variety and a degree of
sophistication. “Trenton and its architects. Lee Harris Pomeroy
Associates. have understood the city's greatest asset lies pre-
cisely in its urbanity-in the uncoordinated melange of shapes
and surfaces in which its history can be traced-and they have
used this asset as a basis for growth.”(Kurtz and Kent. p._23)

Downtown Dubuque. Iowa has had 15 blocks of a downtown
renewal area replanned. 11 of these blocks were totally rebuilt.
Main Street now is a coordinated pedestrian mall. Some historic
buildings have been preserved and restored in the mall. “Towno
Clock Plaza“ is being encouraged to include merchant sponsored
activities. such as dancing and exhibits coordinated with cultural
and community facilities. The hope is to attract more people
to the mall and downtown during the evening after the shops close.
(See Appendix) I

Although pedestrian circulation schemes are old. they
have a new emphasis on counteracting the automobile. “The
trouble is that walking is breaking down. like public transit.
because no one cares enough to make it work. the pedestrian is
forced to use sidewalks that parallel the streets and maximize
the fumes. noise. unsightliness and danger. In the city. walk-
ing for pleasure is a contradiction."i0wen. p. 10“) Hopefully.
the pedestrian mall and other related developments will help put
the pedestrian back as an important element in the city. The
”Intercept Strategy“ is one possible way of combining different
types of transportation technology to form an integrated system.
People movers. personal transportation transit systems. and mass
transit may link auto terminals and pedestrian zones in the central

city.(See Appendix)
DESIGN ELEMENTS

The need to incorporate many complex details into the

-25-

pedestrian mall will require a professional team of engineers
and designers. The design process in the implementation phase
is most critical and is emphasized in most pedestrian mall projects.
"Mary Means seems to agree. "Turning colored pencil renderings
into reality is difficult.” she points out. ”Snappy graphics
won't make a good downtown." She also urges that towns use design
professionals instead of amateurs and that design professionals
should be required to do more than just deliver the plan. They
must be available for consultation all the way through the pro-
cess.'(Progressive Architecture. p. 7“) The inclusion of the
design team through the process is equally important as the
actual design.

The key word is team. The designers should be part of a
decision-making team that encourages the active participation:
of community leaders and citizens in all but the most technical
decisions. There will be numerous opportunities for community
involvement in evaluating design elements such as traffic rerouting.
maintenance and financing. The professional designer may act
as a consultant on these issues., Few pedestrian malls inside
or outside of Illinois. for example. have not included the use
of professional designers and engineers. So. the design team
may include the planner. architect. landscape architect. engineer
and related professionals.

The design concept itself should be based on the functions
of the mall as relating to the existing nature of the street.
The mall should promote walking through circulation spaces that
enhance the interactions and vitality of the street. Standards
must be set up initially so the design may be analyzed in terms
of reflecting the needs of the community. “A good design depends
on a good analysis. A good analysis of your street will indicate
the important design criteria. The criteria tell what is demanded
of the street by the people who use it. Knowing the important

criteria will make the design process easier. will insure fewer
mistakes which could delay the project and will improve design

quality.'(Rogers. p. 65)

.26-

There are eight criteria that will help in analyzing a
street. Land use must be analyzed in terms of how it affects
the use of the use of the street and for future projections.
Transportation deals with access and parking with the ultimate
goal of promoting pedestrian traffic. Funding and legal issues
involve the funding for specific design demands. Services and
deliveries must be considered as part of the design. Utilities
can be buried. but this increases the cost and makes demands on
the choice of paving materials and the location of street furniture.
Emergency vehicle access must also be included in the design.
Marketing and identity programs can call attention to the mall
through a uniform design and graphics element. Finally. street
use must be analyzed in terms of activities and functions through
direct obsuvation of existing situations and future projections.

The design process should be followed going from the more
general to the specific. This is a logical framework.that pro-
vides.a general sequence of design for the professional. First.
major functional areas should be designated. Street use observation
and analysis can be used to subdivide the street space into zones
of different types of activities. In this way. shopping. sitting
and other activity areas won't interfere with each other. but
are integrated into the pedestrian mall as a single functional
system. The design of functional areas involves the specific.task
of designing these areas. Simplicity is to be strived for. en-
abling attention for pedestrian activities and easy viewing of
stores. A design goal might generally involve the creation of
pedestrian spaces that reinforce the the activities of the com-
mercial area. Design of specific elements deals with paving

materials. street furniture. trees and plantings. lighting.
graphic design and construction details. These elements will

-27-

Ireflect the design goals.

The design for each mall is unique. Referrals to other
malls must be evaluated before any ideas are borrowed. In fact.
this is generally discouraged-unique solutions for each mall are

viewed as necessary in most cases.
BUSINESS AND GOVERNMEflT

Can private business be encouraged to take an on-going
interest in downtown revitalizatfion to the point where businesses
assume a percentage of the costs? The relationship of business
and government is a tenuous one. in a capitalistic society. Since
building a pedestrian mall involves both merchants and city officials.
determining who pays for it and how the benefits are distributed
rests on the relationship of these two parties.

An important consideration is our urban goals as focused
basically at the local level by all levels of government. If
we seek to eliminate pollution problems and try to create a safe

but diverse urban core in our cities. the costs to business may
high. If there is no immediate profit. the merchant may not want
to get involved. But. if the costs of inaction can be proved
to be even higher in the long run. the involvement of businesses
becomes possible. Thus. the short-term and>leng-term benefits .
oria pedestrian mall must be emphasized. Initial outlays of money
may result in higher future retail sales levels.(See Appendix)
Different financing techniques by government can also help off-
set any short term losses.e

Alternative approaches can involve the businessman as a
willing partner early in the development of the mall. Federal
incentives in funding include varidus grants devoted to city im-

provements..such as Community Development grants. As a major

-28-

source of funding. the federal government might try to encourage
large-scale innovations as well. To foster more implementation

of revitalization efforts. the need for a program that assures

an adequate level of funding. while allowing some innovative ap-
proaches. is apparent. This program might be designed to encourage
competition in providing alternative solutions to urban problems.

So businessmen can get involved and should. since the problems
of declining cities have serious implications in the marketplace.
But. the depth of involvement casts some apprehension. W111
businesses have a continued on-going interest in the mall. or
will profits still be the first consideration? Will its corporate
image get in the way of change? ”In short. my reading of the
nature of the corporate beast leads me to believe that its own
i2213i3‘iié':‘32“2; :33.‘22“$.21":223i?.§’3."2§.§22‘§23§§.§if?
(Hartman. p. 501.;

One must see the social implications of who controls the
institutions. economic and political forces that shape the com-
munity. Too much business involvement can lead to a dominance
of economic interests which tends to alienate other segments of
the.eemmunity. A balance of government. business and citizen
interests should be represented. Control over local decisions
has been increasingly focused at the citizens in recent years.
Citizen involvement has been previously cited as an important
factor in creating a pedestrian mall. Cooperation and communications

between these various actors can be instrumental in successfully

implementing the mall.

THE ROLE OF THE PLANNER

Up until recent years. physical planning has been emphasized.
City planning agencies only dealt with aspects such as utilities.
highways and zoning. often neglecting social elements. ”Most

-29-

city planning agencies lack resources to develop new concepts

and designs for helping their communities find their way in the
future. But such basic work is essential to the goal-making
process. without it there is no adequate basis for informing public
opinion or stimulatin political and other community leaders to
push for betterment.“ 'fiF tch. p. nan)

The planner is the project coordinator dealing with detn
ermining an optimun location for the mall that would be best re-
flected by.the initially set.goals. he must seek a final plan
that realizes economic and environmental limitations while
creating a flexible. usable mall. Energy. environmental and
financial considerations must be resolved.

Successful malls have increased retail sales. reversed urban
blight in the city center and revived downtown as a place of human
interest and interaction. ”The successful mall program must be
concieved as a total system improvement which include..

--complete exclusion of all but emergency vehicles from the
mall areas

c-development of an adequate perimeter street system to replace
street circulation and capacity lost by the closing.

--provision of adequate peripheral access for transit. private
autos. emergency and service vehicles:

--provision of adhquate nearby'parkingn sufficient to replace all

a spaces lost by the street closing. plus additional parking
generated by the malls

--deve10pment of a cooperative promotional program based on
building improvements. aesthetic landscap ng. increased lighting.
pedestrian amenities. coordinated advertising and special events.“
(’Fruin. p. 1&0) The planner'must address these issues plus

social and environmental issues.

The planner will be involved in zoning changes and regulations
that will shape and limit the mall. New regulations may be needed
to deal with sign control. types of uses. aesthetic treatment
and architectural styles. Regulations that discourage new building
of suburban shepping centers can help direct investment and
development to the downtown area. The planner must analyze
data on land uses and demographics to come up with these possible
regulations.

The planner must consider the habits and needs of the ped-

-30-

estrian. Elements of flexibility and spontanaeity can accomodate
the many different patterns of use. Basically. pedestrians walk
in several distinct patterns. Shopping trips occupy the bulk

of these downtown excursions. Primary-purpose shoppers often
visit one or more major stores plus nearby minor stores. Employee
shoppers also walk. especially during lunchbreaks. Others in-
clude those walking for sightseeing. relaxation. business or work
purposes and for personal service trips. The planner must ex-
amine current pedestrian flows and any changes in land use that
would alter it. “Jane Jacobs has noted four requirements for
"exuberant diversity”: more than one primary function. short
blocks. buildings of varying age. and dense concentrations of
people.“(Morris and Zisman. p. 156)

A basic planning framework for the pedestrian mall will
attempt to integrate these various elements: land use. design.
legal issues. such as zoning and eminent domain. transportation.
economics and the commercial viability of the downtown. citizen
input and participatipn. financing. developers and related in-
terests. and basic goal formulation and coordination of the
development ”team”. as well as data collection and analysis.

This planning framework works at the identification of types of
pedestrian environments and different environmental elements.

The environmental type deals with pedestrian-vehicle separation.

An 'island of common use' is created through integrated planning
and the sensitive arrangement of buildings and activities. Spatial
organization of circular patterns and visual harmony of design
elements must be dealy with at this level. The environmental
elements of a pedestrian mall include actual details of circulation

and design schemes such as parks. plazas. street furniture and

fixtures. and building facades.

This framework can be applied in identifying and comparing

-31-

a number of environmental conditions which pose as planning problems.
One is concerned with the distribution of generators on business
streets. The location of major buildings. housing areas and parking
is important. “In each instance where such developments serve

as major pedestrian generators. the spatial relationships of both
existing and new generators deserves careful review. The need

for new route links. or the eXpansion of existing ones. may be
revealed. as well as the need to orient new structures to the
surrounding network.”(Stuart. p. #1)

Another application lies in the distribution of generators
in residential developments. In the hinrise apartment complexes
near the downtown core. it is recommended that surrounding vacant
land be used to incorporate commercial and community facilities.
These might be linked with the mall both physically and visuallyb

It is important that the planner recognize the pedestrian
as the prime downtown user. The planner is a promoter. critfic
and regulator. He must assess the possible impact of the mall
before the mall is started. Finally. the planner must. “...main-
tain maximum central area intensity and diversity of land use-
with the inevitable generation of great traffic-while providing
an attractive. convenient and safe pedestrian use.'(Morris and
2183‘”. De 158)

The planner's tools are concentrated in two general areas.
First. the planner has certain quasi-legal and administrative
powers derived from government legislation. The power to zone
and all other polices powers concerned with regulating for the
public good are permitted. Eminent domain and purchase of private
lands may be used as key elements in developing land parcels for
downtown malls. Funding powers are granted from federal. state
and local government policies. Finally. administrative powers
deal wdth the planner's ability to collect and analyze data in
the formulation of policy decisions.and feasible alternatives.
All these tools as descibed above may be termed advisory. since

the planner rarely has the final decision. Planning and zoning

-32-

boards as well as other political bodies will have the final right
to approve or disapprove of the planner's policy decisions or
plans. ‘

The most direct tools that the planner can use include
persuasion and education. The planner can keep the interested
affected parties..interest groups and citizens informed and
aware of any activities. meetings and decisions that might affect
them. He can provide vital information that can lead to public
approval of the project as well as educate the concerned groups
about the planning process itself. He can coordinate the various
interest groups involved in the project or serve as an advocate
of any specific citizens group that he represents either as a
community planner or outside consultant. Again. these tools are
not going to assure final approval of a plan or mall project.
but they can mean a great deal in organizing such a project. '

A management outline that lists a generalized set of

planning concerns and priorities is provided in the Appendix.

IV
EVALUATING PED§§TRIAN MALLS

Initial goal setting should reflect the needs of the com-
munity with a degree of flexibility to allow for change. A ped-
estrian mall project should attempt to follow the basic goals.
It will basically help the commercial establishments in a down-
town core area while having side-effects relating to a host of
other issues. Evaluation is hard since many elements are hard
to measure and because the situation may vary greatly between

different cities.
ASSETS AND PROBLEMS

Where the pedestrian mall has been successful. there has
been a multitude of spin-off effects. Some of these include
the increased incidence of both young and older peeple using the
downtown for shopping and other social activities. more variety
of community activities. including special exhibits and events:
and increased rates of voluntary improvements to private property.
Spin-off effects can create a more pleasant urban environment
in the area surrounding the mall. create safer areas for children
to play and for adults to shop and relax.(See Appendix for more
detailed mall benefits that are possible) All these positive
benefits can lead to a new Optimism about downtown by the city
residents. serving as the basis for further changes where needed.

Problems associated with mail development include those
businesses that deal with quick purchasing or purchasing very
heavy items and those marginal businesses that were in difficulty
before the mall was built. ”As should be expected. certain problems
(Ommissions. miscalculations. lack of foresight. noncomprehensive
planning and lack of planning) plagued some of the malls. com-

pounded their problems. raised their capital and recurrent costs.
and hindered their overall success."(0nibokun. p. 210)

-3u.

Planning. or lack of it. in areas such as sign regulations.
traffic. financing. and administration can be a key for the over-
all success or failure of the mall.‘ Newer malls appear to be
capitalizing on the past experiences of other malls with more
planning activity being undertaken. The Nicollet Mall and the

K Street Mall will serve as examples.
THE MINNEAPOLIS EXPERIENCE

Nicollet Mall is located in Minneapolis. It is the primary
retail area of the downtown core.(See Appendix) The Nicollet
Avenue improvements were seen as a means of strengthening down-
town as a whole. Objectives were set forth in the planning con-
sultant's report as “...to improve pedestrian circulation in terms
of efficiency and comfort. to improve access and encourage mass
transportation usage: to create new opportunities for promotion
of the retail area and the Central Business District: and to
encourage private investment.“(Aschman. p. 3) Several alternative
design layouts were considered for the mall. with the 'Mall and
Transitway' idea accepted as best in meeting the needs of the
community. Two specific goals were insisted on by a major retailer
for his backing: top quality construction must be used and the
design must be of the highest aesthetic standards.

The actual success of the mall can be traced back to the
‘adherence to the goals and objectives set up in the initial planning
stages. The design and improvements were all done with high
quality. with major costs assessed to the eventual benefactors.
the retail-establishments.in the mall district. The gently un-
dulating street now serves mini-buses that link the mall to other
areas of the city. The design incorporates thematic landscaping
and ornaments givingthe mall a unique and inviting aesthetic

appearance. Pedestrian circulation has been improved due to

the removal of heavy traffic from the mall area. The result

-35.-

has been an upsurge in retail sales. pedestrian usage‘and snapper
acceptance. and transit access and use. In regarding the mall
as a "success“. one canwalso note the $225 million in new construction
and rehabilitation on Ndcollet Avenue alone since the mall project
was started.

In order to fund the project and decide on a specific set
of goals. the city-wide interests collaborated and integrated‘
their resources. City-wide interests were stressed throughout.
as the mall was to be simply a single element in the downtown
for the future. The project was considered in a regional context
since it would impact on the rest of the city. The high standards
and administrative coordination that were adhered to in the project
are considered an important aspect in the ”success“ of the mall.
This project was accomplished on a sophisticated level with
minimum emphasis on federal funds due to this combination of '

leadership and integrated planning.
THE SACRAMENTO EXPERIENCE

The Sacramento K Street Mall was constructed in a former
skid row area. adjacent to the state capital. It covers an area
of seven blocks and has since been extended by the redevelopment
agency four more blocks. In fully evaluating the mall. a study
has considered the workability of the mall for the merchants and
the users. The goals of the designers differed in their thrust
from those of the merchants and users. The designers wanted to
create an exciting place for the entire length of the mall. The
merchants merely wanted to attract more customers with money to
the downtown shepping area. Users sought a safer. more attractive

place to socialize and shop. Here. a lack of interaction and

coordination in the development of the project resulted in the

~36-

creation of a mall that basically reflected only the designer‘s
intent.

One way of determining the success of the mall can be
indicated fby thebehavior of the users. Elderly working class
men and “hippies“ were seen as the major initial.users of the
mall. They were not desired by the merchants since they spent
too little money and might have been keeping middle-class customers
from using the mall due to their presence. In an analysis of
interviews taken from mall users. it was contended. "...that
working-class people use open public spaces as a setting for
their social activities(middle-class persons use their homes).
while middle-class persons use public afiaces more instrumentally.
in this case for shopping.”(Becker. p. 55) So. the design of
the mall should be flexible to the various needs of the users
while also seeking to reflect a healthy business climate. Un-
fortunately. ultimate satisfaction for all involved groups was
never considered in the initial goal setting.

The goals of the different groups are revealing as a guide-
line for mall deve10pment. '...The merchants view the mall
primarily as a device for rejuvenating their businesses. the
middle-class shoppers are interested in the mall primarily as
a place to shep. with facilities for relaxation from shopping.
and working-class people and young persons view the mall as a
socialoentertainment setting.“(Becker. p. 455) But there seemed
to be a lack of communication between the designers and merchants
in providing for the needs of the different users. For example.
'...the designers intended that the children climb the cement
forms and play in the water. but...parents perceived these forms
as dangerous and prohibited their children from playing on them.“
(Eckbo. Po 38) . . , . -

The designer noted that it would be impossible to design
a mall that would exclude any specific segment of society. so
it would be more logical to provide for all potential users.

The mall is more interesting by including the different types

of users and this can be a long-term benefit for businesses.

The mingling of different types of people that use the mall adds

-37-

to the total effect of diversity.

The mall was initially criticised by users due to the lack
of comfortable seating and the lack of all-weather protection.
The middle-class expressed their dislike of the working-class
and youthful users. Some suggestions to meet a wider range of
user needs were to attract more quality stores in addition to
the chain stores and local crafts shops. provide a wider range
of usable. safe play areas and to scedule more evening activities
geared to the middle-class shappers.

The K Street Mall was a qualified financial success. It
has not lived up to all its expectations. since many were un-
realistic. Even though there has been only fair financial success.
secondary and tertiary benefits have resulted. The quality of
the environment has been measurably and noticeably improved.

Other spin-off effects may have been desirable or detrimental

according to the goals initially set by the affected parties.

So. it is important to have aclear idea of what the mall is to
accomplish from the outset.

There is no one method or set of criteria for determining
the success of a specific mall. Basically. each mall must be
evaluated on its own merits. Success or failure to meet specific
predetermined goals will often involve subjective inputs from
users. merchants and government officials. Pure economic success
is easier to determine. but no more important than secondary effects
in many instances. All these elements. such as the urban environ-
ment and circulation must be considered in any comprehensive
evaluation.

A recommended general set_of criteria might involve a check-
list of elements as listed below. These criteria must be considered

before starting the mall projects

-38-

--FEASIEILITY STUDY-DevelOp a comprehensive plan and phasing for
the mall project that insures the timely. uninterrupted progression
of work from inception to completion.

-.RESPONSIBILITYADetermine and coordinate the actors and agents
involved In the development process.

;-MANAGEMENTeThe leadership for the project may involve the creation
of a Special governing body involving merchants. city officials.
and other community representatives.

--0RDINANCES-Regu1ations may be created to control specific uses
and activities. such as signs and bicycle riding in the mall.

--TRAPFIC AND CIRCULATION-Separation of vehicular and pedestrian
traffic along with adequate nearby parking is a key consideration.
Also. possible reinforcement of mass transit routes to encourage
ad uate service between the mall and all major residential areas
wil depend on the size of the city.

--MAINTENANCE-Continous repair and maintenance must be funded
and organized to preserve an attractive appearance.

--FUNDING-The method of financing the project must be determined.
th pays?

--POLICE PROTECTION-Vandalism and vagrancy as well as more violent

crimes must be prevented through the cooperation of local law
enforcement officials.

o-PROMOTIONS-Active citizen participation in using the mall and
related facilities can be encouraged by focusing promotional and
community activities in the mall area.

o-FLEXIBILITY AND VARIETY-The mall must be able to adapt to
change.

(See Appendix for a more detailed list of considerations and

possible benefits)

W

This report has not proved the absolute need for pedestrian
malls in all cities. It has focused on the deveIOpment of the
pedestrian mail as a tool which the planner can use to revitalize
a declining downtown commercial area. Not every situation will
require a full scale mall as the answer to its problems. Variations
of the basic mall concept have worked well in many different
towns and cities.

The pedestrian mall is a key element in the revival of
downtowns in cities where such measures are needed or feasible.
Government policy must now.begin to focus on the basic issues.
The energy crisis. the high cost of new land development and
housing in the suburbs and downtown. and the downturned economy
have pointed out the need to conserve our scarce resources.

Why then. can't we encourage placing new government units in
already established. but vacant. oore.areas of the city as part
of a comprehensive renewal program. instead of proposing new
developments with new problems in undeveloped areas?

Design. circulation and economic censiderations must be
catalysts for continued redevelopment and regeneration of the
city center. There must be an overall development strategy for
the city center. The mall will be a single. but key. element.
Other goals of increasing the population and nighttime activities
in the downtown area should follow through on a total renewal
concept.

The whole point of a downtown revival then is to create
activities that will be used by everyone in the community. The

aim is not to create an 'island‘ of false hope. ”Strong commercial
activity. the restoration of use and vitality to downtown. are

-h0-

as important as the restoration of buildings. There has been‘
an amazing degree of success. affecting both the main drag of
small towns and the older streets of large cities attesting to
a commonality of aim and effort."(Huxtable. p. i#’

The method of financing. the funding sources. the design
and planning processes. as well as the involvement of a development
team all provide key considerations in creating a pedestrian mall.
The planner must take an active role along with the city officials.
merchants and citizens to insure the project is implemented.
Although it is hard to measure the final outcome in non-economic
terms. the pedestrian mall will. hopefully. create a new sense

of involvement and activity in the formerly declining city center.

APPEND IX

PEDESTRIAN MALL PROJECTS: A muggy? OUTLINE

I. Sketch. d Define Project

—-Is thfinproject go ng to involve a full mall. semi-mall.
or transitway combination?

o-Does the project involve acquisition?

c-What is the physical develo ment potential of the project?

o-Is the project site(or area) publically privately owned
(or a combination of both)?

--Does the project involve a special feature. such as a
historic district or waterfront activity area?

--Does the project involve strictly a commercial district.
include residential uses: include right-of-way or open-
.space developments or a combination of the above?

--Is the project urgent? What is the suggested time frame?

II. What lg thg Extegt of the Projegt?
--What are the physical requ rements of the project?
-- What are the anticipated costs? '

III.Determi e Identity 9f Pgojegt M na are
--Who w ll manage the project aS‘ t proceeds?
--Who will manage the project after completion?

IV. Assess Local Project Support
'-WRICh public. soc al. and cultural organizations support
t e pro ect. ‘
--Which businesses(including commercial) and governmental
agencies/officials support the project? .

V. Assess Issues and Obstacles

o-Can financial support be provided by the community before
and after the project?

c-What is the market feasibility of the project?

--Are there any physical threats to the project?

e-Does the mall: have comprehensive community support?

--What are the project's funding sources?

--What is the nature of project management responsibility
in the short-term and long-term?

--What are specific problems dealing with matters concerning
zoning. building codes/barrier-free design. traffic/parking.

energy efficiency. environmental. structural problems and
related issues? A

VI. Assess Funding Sources
--What are available public and private funding sources?

VII.As§gsg Long-Rang; Mana ement NeedsZProblems

--What are the phys cal ma ntenance needs?

ooWhat are the environmental needs dealing with continued
legal enforcement and administration of the mall project
improvements and policies?

 

PEDESTRIAN MALL DISTRIBUTION BY CITY SIZE

 

 

Population Range

Less than 50,000

City, State

Atchison, Kansas
Atlantic City, New Jersey
Battle Creek, Michigan
Ccntralia, Illinois
Charlottesville, Virginia
Coos Bay, Oregon
Danville, Illinois

East Lansing, Michigan
Freeport, Illinois
Ithaca, New York
Jackson, Michigan

Las Cruces, New Mexico
Lebanon, New Hampshire
Michigan City, Indiana
Monroe, North Carolina
Napa, California

New London, Connecticut
Parsons, Kansas
Poughkeepsic, New York
Rodding, California
Rodlands, California
Richmond, Indiana
Salisbury, Maryland
Toccoa, Georgia
Winchester, Virginia
Yakima, Washington

 

 

50,000-100,000

Burbank, California
Decatur, Illinois
Dubuque, Iowa

Eugene, Oregon
Galveston, Texas
Grecnville, South Carolina
Kalamazoo, Michigan

Lake Charles, Louisiana
Miami Beach, Florida
Oxnard, California
Pomona, California
Portland, Maine

Reading, Pennsylvania
Santa Monica, California
Springfield, Illinois

 

 

 

Population Range City, State

 

Greater than 100,000 Baltimore, Maryland
' Dallas, Texas

Evansville, Indiana
Fresno, California
Honolulu, Hawaii
Knoxville, Tennessee
Lansing, Michigan
Lincoln, Nebraska
Louisville, Kentucky
Memphis, Tennessee
New Bedford, Massachusetts
Ottawa, Canada
Paterson, New Jersey
Providence, Rhode Island
Quebec City, Canada
Raleigh, North Carolina
Riverside, California
Rockford, Illinois
Sacramento, California
Tacoma, Washington
Tampa, Florida
Trenton, New Jersey
Washington, DC
Youngstown, Ohio

 

 

East Liberty, Pennsylvania -— Population N/A*

* Not Available

 

From: Downtown Malls: An Annual Review.
V0 . 1. pp. 2- 3

 

 

 

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BENEFITS OF MALLS

 

 

 

 

 

 

 

 

 

 

 

 

 

Increase
In Prop-
Increase Investments erty Val-
CITY, STATE Increase In Pedes- In Remodel- ues And Vacancies
In Retail trian ing and New Rentals (Before
Sales(Z) Traffic(%) Construction (Z) to After)
Fresno, CA .
First year 9-40 60
First 3 years (1&053Q.) $40,000,000
Springfield, IL 14
Kalamazoo, MI 84% of stores
. First 5 years 15 40 remod. $16, 30 8 to 0
000,000 new
First 9 years 20 construction
Knoxville, TN
First year 20 27—75 24% to 0%
First 5 years 111
Pomona, CA
First year 16-42 73 $7,700,000 20% incr. 26% to 0
, (20 an.) (let 3 years) in tax
Dept. stores 36 revenues
Atchincon, KS 10 new
-First year 11-30 businesses Yes
(20 avg.) $3,500,000
Danville, IL Remodeling,
First year 7 improvements
in store
First 2 years 10 fronts, ex—
pansions
dackson, MI
First year '30
:Providence, RI
First year 5'30
(20 avg.)
Santa Monica, CA
First year 5’13 $ 1,500,000
' (10 8V8.) remodeling
Miami, FL .
First year 10—25 50 Yes (new
construction) Yes
Eugene, OR
First year 16 7 $13,000,000

 

Source:

Downtown Malls:

Feasibility and Development (New York:

Downtown

 

Research and Development Center, 1974), p. 38.

 

 

S'l‘lil'C’l‘L’lH‘I AND COMPOSITION OF A PEDESTRIAN MALL M.~\.\'.-\GEMl-INT BODY

 

 

 

 

I " 1-...-- l I '
r i I I City I
Citizens’ Groups ' 1 Business. Groups I Government ‘

f I l I Officials I

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I

I
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I

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From: Onibokun. p. 215

IN TERC EPT STRATEGY

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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The "Intercept Strategy” developed by
the Center City Transportation project already has been
applied in Norwich, England, where a long-range
transportation plan for the central area has been adopted.
The plan includes the creation of two large pedestrian
zones in the city's histogg area’s,

From Klein and Arensberg. p. 124

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From: Johnston. p. 13

Myriad Gardens. Oklahoma City

 

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and a com-emu)" ("“9" Make by Conklin & Rossant; Hammer, Greene.
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dentzens, 0” er "'8’ ”’3'" a broad Project architect: Peter Money.

 

 

 

 

From: Kurtz and Kent. p. 22

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Though well- lighted, Town Clock Plaza
uyse appears almost deserted in
nighttme view—perhaps because

there are not enough activities to attract

people back to the mall once Penny's
and other shops close at 5:00 p.m. The
plaza, which has received an Award of

Merit from the American Society of

Landscape Architects, was designed by

Barton-Aschman Associates, Chicago.

From: Kurtz and Kent.

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With II 0/ these 15 blocks (above) razed
and rebuilt. Dubuque will wear the court
dress 0/ this century’s urban peerage.
But it may be a while before the town
can balance out the amount of activity
the mall generates against the'amount

of life it may have disrupted.

Po 27

 

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BIBLIOGRAPHY

Huxtable. Ada Louise. “The rail and Rise of Main Street'.‘zng
New York Times Magazine. May 30. 1976. pp. 12-14

Gruen. Victor. C te s or the U b n vi onm n I Surv v of
the Cities. Van Nostrand Reinhold Company. 1973. ch. 6

”Alternatives to Suburbia“. Néflgngugggl-Sggpg. Aug. 2. 1976.
pp. 15-22

Goldfield. David-R.. “Historic Planning and RedevelOpment in;
Minneapolis“. gégg. Jan.. 1976. pp. 76-86

”Nostalgic de la rue“. Pro ssive Architecture. Nov.. 1976.
pp. 70-75 '

Johnston. Norman J.. ”A City Takes the First Step: An Experiment
for Renewing a Central Business District“.‘g5;§. 1958.
Number h. pp. 11-15

Doxiadcs. 0.11.. WW.
Public Administration.Service. 1966. 17hpp.

Alexander. Laurence A.. “Malls for Downtown RenewalI An EValuation'.
Downtggn Malls-Ag Annual-Review. vol. 1. pp. “-9

Erikson. Robert D.. “The Physical Layout and Servicing of Pedestrian
Improvements in Central Business Districts”. Downtogg Malls-
An Annu 1 Re iew. vol. 2. pp. 20-2h

Levinson. Herbert S.. fThe Myth and Reality of Downtown Malls-

An Overview”. Dogntggg Malls-An Annual Review. vol. 1. pp. 10-16
Goldstein. Benjamin. “Revitalization of Commercial Areas in Urban

Neighborhoods”. LIP nggtiging Planner. June. 1976. pp. 33-36
Heller. John L.. “Funding and Legalities Involved in Building

Downtown Pedestrian Improvements“. Downtown Malls-An Annual

R view. vol. 2. pp. 3h-39

Pruin. John..2sdes1rinsezlannins_an§_235isn. Metr0politan Association

-56-

of Urban Designers and Environmental Planners. Inc.. New
York. 1971

Lion. Edgar.,8nggping Centezgu Piggning. Dexglgpment and Adminigtggtign.
John Wiley & Sons. Inc.. New York. 1976

Morris and Zisman. "The Pedestrian. Downtown and the Planner“.
£312. Aug.. 1962. pp. 152-158

Stuart. “Planning for Pedestrians“. gglg. Jan.. 1968. pp. 37-h2

Berk..EManuel..Downtown Improvegent Manual. ASPO Press. 1976.
Ch. 21

Onibokun. Adepoju. ”A Comprehensive Evaluation of Pedestrian
Malls in the United States". The Apprgigg; Journal. April.
1975. . pp. 202-218

Aschman..Frederick. ”Nicollet Malia Civic Cooperation to Preserve

Downtown's Vitality“. AI? Piggnggg Notgbook. Sept.. 1971
Becker. Franklin D.. “A Class-Conscious Evaluationa Going Back

to the Sacramento Mall“. Landscape Agchitggture. Oct.. 1973.
pp. has-n57

Eckbo. Garrett. "Evaluating the Evaluation”. Design and Environ-
£2250 Winter 1971. pp. 39-h0

Uhl. Thomas L.. “Relationship of Citizens and Government in Dec-

w Decision-Making on Downtown Improvements”. Dggntown Malls-

An Annual Review. vol. 1. pp. 47-h9

Klein and Arensberg. "Auto-Free ZonesI Giving Cities Back to the
People“. Ekistics. Peb..19?#. pp. 122-125

Kurt: and Kent. “Pedestrian Powert”. gegign_ggg_§g!igggmgnt. Fall
1972. PP. 20-29

Owen. Wilifred. The Accessible City. The Brookings Institution.
Washington. D.C.. 1972. 135 DP. ’

 

Rogers. Frank. “Creating a Pedestrian Mall Design Concept”.

-57-

Downtown Malls-An Annual Review. vol. 2. pp. 65-69

Hartman. Chester. ”How Deep is the Private Sector's Involvement?'.
Business and the Cities. Neil Chamberlain. ed.. Basic Books.
Inc.. 1970

Fitch. Lyle 0.. ”Goals for Urban Development“. Business and the
Cities. Neil Chamberlain. ed.. Basic Books. Inc.. 1970

 

 

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