interim commercial strategy discussion … commercial strategy discussion paper downtown burlington...

INTERIMCOMMERCIALSTRATEGYDISCUSSIONPAPERDowntownBurlington

Prepared for:

The City of Burlington

February 21, 2013

DowntownBurlingtonInterimCommercialStrategyDiscussionPaper

February21,2013

Ms.AndreaSmith,MCIP,RPPSeniorPlanner–Policy,PlanningandBuildingDepartmentCityofBurlington426BrantStreetBurlington,OntarioL7R3Z6DearMs.Smith:

RE:InterimCommercialStrategyDiscussionPaper,DowntownBurlington

urbanMetricsinc.andThePlanningPartnershiparepleasedtosubmitourInterimDowntownCommercialStrategyDiscussionPaper,whichprovidesasummaryofourpreliminaryfindingsastheyrelatetothecurrentstateofDowntownBurlington;thevariousfunctionsitserves;howwellitiscurrentlymeetingtheneedsoftheCity;andhowwellcurrentlanduseplanningpoliciesaresupportingitsvibrancy.ThisdiscussionpaperhasbeenpreparedaspartoftheCityofBurlington’sbroaderOfficialPlanReviewCommercialStrategyStudy,whichisbeingundertakenjointlybyurbanMetricsinc.andThePlanningPartnership,withinputandfeedbackbyCityofBurlingtonstaff.

TheprimarypurposeofthispaperistoinformtheDowntownTaskGroupsothatitcanproceedwithinformedconsultationwithstakeholdersandthecommunity;raiseinsightfulconsiderationtofacilitatepubliccommunicationandengagement;andtoexplorestrategicoptionstoaddressthevibrancyofDowntownBurlington.IthasbeenapleasureconductingthispartofourassignmentonbehalfoftheCityofBurlingtonandtheDowntownTaskGroup,andwelookforwardtodiscussingourresults.

Yourstruly,urbanMetricsinc.

RowanF.J.Faludi,CMC,MCIP,RPP,PLE Partner [email protected]


TABLE OF CONTENTS

EXECUTIVESUMMARY.....................................................................................................................................................................................................I

1 BACKGROUND............................................................................................................................................................................................................1

2 CURRENTSTATEOFDOWNTOWN......................................................................................................................................................................4 2.1 COMMERCIALSPACEINVENTORYINDOWNTOWNBURLINGTON....................................................................................................................................................................4 2.2 CHANGEINDOWNTOWNCOMMERCIALSPACE2002‐2012..........................................................................................................................................................................8 2.3 VACANTCOMMERCIALSPACE...............................................................................................................................................................................................................................9 2.4 DOWNTOWNCOMMERCIALSPACEINCOMPARABLECOMMUNITIES..........................................................................................................................................................12 2.5 OFFICECOMMERCIALSPACE..............................................................................................................................................................................................................................14 2.6 FUTUREDEVELOPMENTSITES..........................................................................................................................................................................................................................16

3 FUNCTIONSOFTHEDOWNTOWN.....................................................................................................................................................................19 3.1 POPULATIONANDEMPLOYMENT......................................................................................................................................................................................................................20 3.2 DOWNTOWNON‐STREETINTERCEPTSURVEYRESULTS..............................................................................................................................................................................21 3.3 CITYOFBURLINGTONTELEPHONEANDON‐LINESURVEYS........................................................................................................................................................................30 3.4 DOWNTOWNTRADEAREA.................................................................................................................................................................................................................................37

4 HOWWELLISDOWNTOWNSERVINGTHECITY..........................................................................................................................................44 4.1 ON‐STREETVISITORINTERCEPTSURVEY.........................................................................................................................................................................................................44 4.2 DOWNTOWNPUBLICWORKSHOPVISIONING...................................................................................................................................................................................................48 4.2.1 RoundTableDiscussions(TableTopics).....................................................................................................................................................................................................52

5 FUTURECHALLENGESANDTRENDS................................................................................................................................................................54 5.1 AGINGRESIDENTIALPOPULATION...................................................................................................................................................................................................................54 5.2 CHANGINGSOCIALANDECONOMICSTRUCTURALPATTERNS.....................................................................................................................................................................54 5.3 POPULATION&EMPLOYMENTGROWTH.........................................................................................................................................................................................................56 5.4 E‐RETAILINGANDNON‐STORERETAILING......................................................................................................................................................................................................57 5.5 RETAILDEVELOPMENTTRENDS.......................................................................................................................................................................................................................59 5.6 CHALLENGES.........................................................................................................................................................................................................................................................60


6 SUMMARYANDCONCLUSIONS...........................................................................................................................................................................61 6.1 CURRENTSTATEOFTHEDOWNTOWN.............................................................................................................................................................................................................61 6.2 FUNCTIONSOFTHEDOWNTOWN......................................................................................................................................................................................................................61 6.3 FUTURECHALLENGESANDTRENDS.................................................................................................................................................................................................................63

7 PRELIMINARYPOLICYRECOMMENDATIONS...............................................................................................................................................65 7.1 DOWNTOWNBOUNDARIES&STRUCTURE......................................................................................................................................................................................................65 7.2 MINIMUMDENSITYTARGETS............................................................................................................................................................................................................................67 7.3 SPECIFICMIXEDUSETARGETS..........................................................................................................................................................................................................................67 7.4 ANEWRETAILSTRUCTURE...............................................................................................................................................................................................................................68 7.5 PROVIDEINCENTIVESFORINTENSIFICATIONANDNON‐RESIDENTIALDEVELOPMENT.........................................................................................................................69


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EXECUTIVESUMMARY

BACKGROUND

urbanMetricsandThePlanningPartnershiphavebeenretainedbytheCityofBurlingtontoundertakeaCommercialStrategyStudy,whichisbeingpreparedaspartoftheCity’songoingOfficialPlanReviewprocess.

ThisInterimCommercialStrategyDiscussionPaperrepresentsonecomponentofthebroaderCommercialStrategyStudybeingundertakenbyurbanMetricsandThePlanningPartnership.ItfocusesonthefollowingkeytopicsrelatingtoDowntownBurlington:

ThecurrentstateofDowntownBurlington;

ThevariousfunctionsservedbyDowntown;

HowwellDowntowniscurrentlymeetingtheneedsoftheCity;

TrendsandotherfactorsthatwillinfluencethefuturestateoftheDowntown;and,

Howwellcurrentlanduseplanningpoliciesaresupportingitsvibrancy.

THECURRENTSTATEOFDOWNTOWN

DowntownBurlingtoncomparesveryfavourablytoothersuccessfullyfunctioningdowntownsintheGTA.AllofthefollowingcharacteristicspointtothevibrancyofDowntownBurlingtonasitcurrentlyexiststoday:

thescaleofthecommercialcore;

lowvacancyratesinprimeareas;

recentresidentialdevelopmentactivityandinterest;

publicsectorinvestmentinthedowntownandwaterfront;and,


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thecontinuedfocusoncivicevents.

Equallyasimportant,istheconfidencethatBurlingtonresidentshaveinthecore,whichhasbeenexhibitedthroughtheDowntownworkshop,andotherdirectconsumersurveyinformationgatheredaspartofthisstudy.Thiswillbeparticularlyimportantgoingforward,asDowntownBurlingtonexpandsitsroleasanUrbanGrowthCentreandMobilityHub.

DowntownBurlingtoncurrentlycontainsapproximately1.09millionsquarefeet(101,000squaremetres)ofretail/servicecommercialspace.

Aswithmanydowntowns,themajority(69.3%)ofthisspaceiscurrentlytenantedbyservice‐basedcommercialfacilities,suchasBanks;FoodServicesandDrinkingPlaces(i.e.,full‐servicerestaurants,fast‐foodrestaurants,bars,pubs,andcafes),PersonalCareServices(i.e.,hairandbeautysalons,barbershops,tattooparlours,laundryservices)andHealthCareservicefacilities(e.g.,doctors,dentists,andotherofficesofhealthpractitioners).Retailtenantscurrentlyrepresentonefifth(19.5%)ofthetotalcommercialspaceinDowntownBurlington.Bycomparison,retailtenantscompriseapproximately56%oftheinventoryfortheentireCity.

Downtownsaremorelimitedintermsoftheirabilitytoattractthefullrangeofstorecategoriesfoundinanurbanmarketduetolimitationswithregardstolandarea,spaceandunitconfigurations.Storesthatoftenhavedifficultylocatingindowntown’sinclude:

Chainswithlargeandinflexiblefloorplates(e.g.departmentstores;manybigboxstores;warehousemembershipclubs;furnitureandappliancesuperstores;andbuildingsupplycentres.

Storeswhich,duetothenatureoftheiroperationsandmerchandise,relyalmostexclusivelyonautomobiletraffic(e.g.manyfurnitureandappliancestores;automotivepartsandrepairoutlets;homeandautostores;and,

Chains,whichhaveanexclusiveaffinitytolocatinginenclosedmallsorpowercentres.

InthecaseofDowntownBurlington,thevastmajorityofretailunitsareunder5,000squarefeet,withsome65%under2,000squarefeet.Withonlyafewexceptions,theunitsover5,000squarefeetareoccupiedbyspecializedusessuchasrestaurants,officesorpublicservicesthatwouldnotlendthemselvestoretailuses.

Forthesereasons,itwouldbedifficulttosignificantlychangethegeneralretailmixindowntownBurlington,althoughtherearecertainstorecategoriesthatmightbeexpandedinkeepingwithcurrenttrendsinotherdowntownareas,including:amedium‐to‐largescalepharmacy;electronics;officesupplies;sportinggoods/sportsapparel;dollarstores;giftandspecialtyretailoutlets.


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ThecurrentretailandservicecommercialvacancyrateinDowntownBurlingtonis11.2%.Althoughthisisarelativelyhighvacancyrate–with“typical”or“normal”vacancyratesrangingbetween5.0%and8.0%–itisimportanttonotethatmostofthevacantspaceinDowntownBurlingtonisconcentratedinthreeagingcommercialplazas;VillageSquare(422PearlSt),TudorSquare(2022–2028CarolineStreetand515JohnStreet)andBurlingtonSquarePlaza(760BrantStreet).Foravarietyofreasons,VillageSquareandBurlingtonSquarehaveperenniallystruggledasretaildestinationsandTudorSquareisundercurrentlyunderredevelopment.Excludingtheseproperties,thevacancyrateinthedowntownisahealthy4.8%.

Thereareanumberofundevelopedandunder‐developedproperties,whichofferthepotentialfornewdevelopment.AmongthemostnotableofthesesitesarethetwoCity‐ownedparkinglotslocatedimmediatelyeastofBrantStreetbetweenJamesStreetandPineStreetinthenorthandsouth,respectively(i.e.,ParkingLots“4”and“5”).Thedowntownalsocontainsanumberofagingstripretailsitesandsmallercommercialcentres,whichcouldpotentiallysupportnew,moreintensifieddevelopmentincomingyears.Fromaplanningperspective,thesesitesshouldberecognizedaspossiblecandidatesformixed‐useintensifieddevelopment.However,intermsofaddressingtheshort‐termsupplytheyshouldbeconsideredspeculative.

FUNCTIONSSERVEDBYDOWNTOWNBURLINGTON

DowntownBurlingtoncurrentlycontainsawiderangeoflandusesandservesavarietyofdifferentfunctions;bothlocallyandwithinthecontextoftheCityasawhole.

Thedowntownservesasanimportantplacefor:

Shopping–representingthecommercialcoreoftheCityandcontainingapproximately1.1millionsquarefeetofretailandservicecommercialspace;

Working&Learning–supportingawiderangeofemploymentactivities,particularlyofficeandretail/servicecommercialbasedemployment,withanumberofmajoremployers,includingCityHallandJosephBrantMemorialHospital.

Living–containingamixofbothestablishedresidentialneighbourhoodswithpredominantlydetachedhousing,aswellasnewermediumandhighdensitycondominiumapartmentresidentialdevelopments;


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Playing–offeringopportunitiesforavarietyofleisure,recreationalandentertainmentactivities,includingthosefocusedalongthewaterfrontandotherslocatedatvariousculturalattractionsthroughoutthedowntown(e.g.,BurlingtonPerformingArtsCentre,BurlingtonArtCentre,etc.);

CivicPresence–containingCityHallandotherimportantmunicipalandlocalinstitutions.

CommunityActivities–providingspaceforresidents,employeesandvisitorsofBurlingtontogatherandservingasthefocalpointofmanyoftheCity’sfestivalsandcommunityevents,and,

Transportation–containingBurlingtonTransit’sJohnStreetBusTerminal,aswellassupportingavarietyofothermodesofactivetransportation(e.g.,walkingandbiking)viatheCity’swaterfronttrailsystem.

Anumberofsurveyswereconductedaspartofthisstudy,threeofwhichincludedanon‐streetdowntownvisitorsurvey,atelephonesurveyofBurlingtonresidents,andanon‐linesurveyofBurlingtonresidents.SurveyrespondentswerealsoaskedtoratehowimportantitwastothemthatDowntownBurlingtonperformanumberofpre‐definedfunctions.Theresultsofthesurveysweresimilar,withallfunctionsscoringwell.

Thetop‐ratedfunctionsrelatedtosocial,entertainment,culturalandrecreationalactivities,withthehighestrankingresponsethatthedowntownserveasaplacefortheCity’sfestivals.Similarly,itwasalsoimportantthatDowntownBurlingtonbetheculturalcentrefortheCity,aswellasserveasaplacetomeetfriends;takeout‐of‐townvisitors;andenjoyrecreationalandleisureactivities.

Fromacommercialperspective,itisalsointerestingtonotethatrespondentsofallthreesurveyssuggestedthatitwasmoreimportantthatdowntownbeaneighbourhoodshoppingdestinationthanaregionalshoppingdestination.

Thedowntownon‐streetsurveyparticipantswereaskedwhytheyhadvisitedDowntownBurlingtononthedayofthesurvey.Approximately26%oftherespondentsindicatedthattheylivedinDowntownBurlingtonandanadditional15%indicatedthattheyworkedthere.Allotherrespondentsindicatedthattheywereindowntowntoperformotheractivities,suchasshopping;dining;foranappointment,ortoholdbusinessmeetings.


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Onlyabout13%ofrespondentstravelleddowntownspecificallytoshop.Aswithmostdowntownsnotaccessedbyrapidtransit,themajorityofretailfacilitiesexisttoservenearbyresidentsandemployees.Thebalancetendstoconsistofspecialtyretailwithamoreregionaldrawwhichbenefitsfromtheuniqueambienceprovidedbydowntownenvironments.ThisfurtherconfirmsthatDowntownBurlingtonisamulti‐functionalcentrewithnoonedominantactivity.

Thetelephoneandon‐linesurveysofBurlingtonresidentswereusedtoidentifytheshareofBurlingtonexpendituresinvariouscategoriescapturedbythedowntown.Thehighestdowntownmarketsharerelatestorestaurants(23.6%),followedbyspecialtyfood(13.5%),miscellaneousretail11.3%,andfashion(10.9%).Theseresultspointtothestrengthofthedowntownasarestaurantdestination,andaplaceforspecialtyretail.

Thecategoriesinwhichrespondentsfeltneededbolsteringthemostwerespecialtyfoodstoresandsupermarkets,illustratingtheimportanceoffoodtothedowntownretailmix.

Basedontheresultsoftheon‐streetsurvey,thePrimaryTradeAreaforthedowntown,whichwouldrepresentthesourceofthemostcustomersonconsistentandongoingbasis,hasbeendefinedastheareaeastofKingRoad,southof403/QEW,westofWalkersLineandnorthofthelake.TheSecondaryTradeAreahasbeendefinedasthebalanceoftheCityofBurlington.

TheCityortheentireTradeArearepresentssome80%ofcustomeroriginsThePrimaryTradeArearepresentssome63%ofdowntownvisitorswithapopulationof46,000.BasedonHaltonRegion’sBestPlanningestimates,thisisexpectedtoreach53,000by2031,largelythroughinfillandintensification.

DOWNTOWNTRADEAREA


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DowntownBurlington,hasalsobeendesignatedasanUrbanGrowthCentre,undertheProvince’sGrowthPlanfortheGreaterGoldenHorseshoe.Itsallocatedtargetby2031is200personsandjobsperhectareor23,400personsandjobs.Thisrepresentsagrowthofapproximately9,400personsandjobsovertheestimated2006totalof14,000(i.e.growthofmorethan67%).

HOWWELLDOWNTOWNISCURRENTLYMEETINGTHENEEDSOFTHECITY

Thedowntownon‐streetinterceptsurveysalsoincludedquestionsrelatingtothelevelofsatisfactionpatronsofDowntownBurlingtonexperiencedintermsoftheavailabilityofspecifictypesofretailandservicefacilitieslocatedinthedowntown.Similarly,respondentswerealsoaskedtoprovideexamplesofthespecifictypesofimprovementsthattheywouldliketoseeinDowntownBurlington.

Approximately37%ofallrespondentsindicatedthattheywouldliketoseeanewmovietheatreaddedtothedowntown;particularlyonethatoffers“first‐run”films.Thisisparticularlyrelevant,giventhattheseresponseswereprovidedpriortotheannouncedclosingoftheEncoreTheatreinUpperCanadaPlace–theonlycinemainthedowntowncore.

Some21%ofrespondentsdesiredmorespecialtyfoodstoreoptions,suchasbakeriesanddelis,whilenearlyonequarter(23%)indicatedthattheywouldmakeuseofnewrestaurants,pubs,cafesandfastfoodestablishmentsiftheywerelocateddowntown.

Furthermore,approximately25%ofsurveyparticipantsindicatedthattherewere“other”typesofcommercialestablishmentsthattheywouldliketoseeaddedtothedowntownaswell.Themajorityoftheseresponsesrelatedtotheexpansionofentertainmentoptionsforyoungerresidentsandvisitors;particularlythoseinthe19‐34agegroup.

IntermsoftheadditionalimprovementsthattheCitycouldmaketothedowntown,responseswererelativelyevenlydistributedacrossawidevarietyoftopics.

AmongthemostfrequentresponsesincludedcommentsrelatingtofinishingconstructionofthepierprojectatthefootofBrantStreetandthewaterfront.

Othercommonlyproposedimprovementsincluded:

Better/morefrequenttransitoptions;


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Moreaffordablehousingnearthewaterfront;

Establishingpriorityforpedestriansandcyclists;

Permanent/morefrequentstreetclosures;

Freeparkingtocompetewithlargershoppingcentres;

Morepublicartinstallations;

BeautificationandstreetscapeimprovementsalongBrantStreet;and,

Expansionofavailableparkspace.

Inadditiontothedowntownsurveys,aDowntownPublicWorkshoppublicconsultationeventwasheldonNovember7,2012attheBurlingtonArtCentre,whichwasattendedby130localresidents,businessowners,andothermembersofthepublic.Aninteractiveandconfidentialpollingtechniquewasusedtoobtainfeedbackonquestionsrelatedtothecurrentandfuturestateofthedowntown.

Morethan87%ofthepeoplewhoattendedthepublicconsultationeventagreedthatDowntownBurlingtonalready“hasalotgoingforit”.Lessthanonepercentdisagreedorstronglydisagreed.TheseresultsstronglyconfirmthatBurlingtonalreadyhasaveryhealthyandattractivedowntown,whichisgenerallymeettheneedsoflocalresidents,employeesandbusinesses.

Despitetheiroverallsatisfactionwiththearea,however,participantsalsoconfirmedthattherewereseveralaspectsofthedowntownthatrequireimproving.Inparticular,manyrespondentswereoftheopinionthatthedowntownneedstoabetterjobofservingasaneighbourhoodshoppingdestination.Aconsensuswasnotreachedonthistopic,however,asvotesweredistributedrelativelyevenlyamongtheoptionsprovided.

ParticipantsattheeventalsovotedonthetopthingsthattheywouldliketoseeaddedtoDowntownBurlington.Thetopthreecategorieswereentertainmentopportunities,retailstoresandrestaurants/cafes.


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Iadditiontotheinteractivesession,theworkshopparticipantsweredividedintobreak‐outgroupsformoredetailedconversationswithamoderator.Thesebreak‐outsessionsrevealedanumberofcommontopics.

Therewasanoverwhelmingnumberofcommentsfromthepublicindicatingthattheywouldliketoseemorespecialtyfoodstoresinthedowntown;includingbutchers,fishmarkets,bakeries,gourmetfoodshops,freshproduce/fruitstores;organic/healthfoodstoresandoptionsforvegans/vegetarians/gluten‐freeshoppers.

Similarly,participantsalsoindicatedthattherewasaneedforasecondsupermarket/grocerystoreinthedowntown,whichconfirmtheresultsofboththeon‐streetinterceptsurveysandvisioningexercise.

Afarmer’smarketwasalsofrequentlyidentifiedasahighlysought‐afteroptionforlocalresidentstopurchasefreshproduceandrelatedfooditems.

Othersuggestionsofthetypesofretail/servicefacilitiesthatweredesiredinthedowntownmainlyrelatedtoneighbourhood‐orientedretailestablishments,suchashardwarestoresandpharmacies/drugstores.

Similarly,otherfrequentlymentionedtopicsincluded:

Theredevelopment/revitalizationoftheVillageSquaresite;

Addingmoreentertainmentvenues(e.g.,livemusicvenues,etc.)

Expandingtransitoptions;

Increasingthesupplyofparking(e.g.,moremulti‐storeyparkingstructures);

Improvingcyclingandpedestriannetworks(i.e.,dedicatedlanes,safer,betterlighting,bicycleparkingoptions,connectionswithdowntownfromwaterfront);

Improvingway‐findingandsignage(e.g.,maps,directories,streetsigns)

Providingmoreaffordableshoppingoptions;

Establishingmoreaffordablehousingoptionsforalldemographics(e.g.,youngfamiliesandsingles);


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Attractingmoreeducationalinstitutions(e.g.,university/collegecampusesorsatellitecampuses);and,

Addingmoregreenspaceandexpandingotherexistingpublicspaces.

TRENDSANDOTHERFACTORSTHATWILLINFLUENCETHEFUTURESTATEOFTHEDOWNTOWN

Thefuturedirectionofdowntownwillbeheavilyinfluencedbyanumberofprevailingtrends:

ItsmandatedgrowthasaprovincialUrbanGrowthCentre;and,

TheagingOntariopopulation

Changingsocialandeconomicstructuralpatterns.

Asamandatedgrowthcentre,theCitywillberequiredtoplanforanexpansionofnearly70%morepersonsandjobsinthedowntownthancurrentlyexiststoday.Additionalpopulationwillrequiresupportingservices,suchasnewretailstores,personalservices,schools,andsimilaractivities.Whiletherearesomekeydevelopmentandintensificationsitesinthecore,itisunlikelythattherequiredpopulationandemploymentcanbeaccommodatedwithinsinglefunctionbuildings.Futurepoliciesmustencouragemixedusedevelopmentandensurethatitoccursinamannerthatcanaccommodatetherequiredsupportingcommercialandinstitutionalservices.

TheagingpopulationwillalsoplacechallengesonthepublicandprivatesectorinfrastructureandthedowntownisuniquelysuitedtobecomeafocalpointfortheCity’sseniors;owingtoitsconcentrationofresidentialapartments,accesstoretailandservices,thepedestrianfriendlyenvironment,proximitytothehospitalandavailabilityoftransit.

Changingfamilystructuralpatterns,andtheresultingtimecrunch,havechangedthewayCanadiansshop–givingrisetolargeformatfoodretailingandanincreaseintheconsumptionoffastfoodsandprocessedfoods.Seniorslivingalone,maybeparticularlychallengedbyrecentretaildevelopmentpatterns,whichfavourlargecentralizedretaildestinationsoverneighbourhoodshoppingnodes.Thechallengeforplannerswillbetocreateamoreefficienturbanstructure.

Intermsoftheretailsector,whilegrowthinlargeformatretailingisslowingandsomemajorchainsaredevelopingmoreurbanfriendlymodules,theentryofUSandforeignretailersandtheinvestmentsbeingmadeintorevitalizingoldersuburbancentres,willlikelymakeitdifficultfordowntowntocompeteasaregionalshoppingdestinationwithintheCity.


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Asindicatedbythesurveys,onlyasmallportionofvisitorscametothedowntowntospecificallyshop,butshoppedbecausetheywerethereforsomeotherpurpose(e.g.downtownresident,downtownemployee,visitingthewaterfront,attendingaperformance,etc.).Inouropinion,ensuringthatthissupportingfunctioncancontinuetothriveshouldbetheprimarygoalofaretailstrategyforthecore.Morespecialtyandregionalservingretailcomponentswillnaturallyevolveasthedowntowngrows.

PRELIMINARYPOLICYRECOMMENDATIONS

Basedontheinformationpresentedintheprevioussectionsofthispaper,aswellasthevariousotherresearchundertakenbyourprojectteamtodate,thefollowingprovidesanumberofpreliminarypolicyrecommendations,whichrelatespecificallytothedowntown.AdditionaldetailwithregardstotheserecommendationsiscontainedinthePhase1:CommercialPolicyandDesignReviewBackgroundReport.

Inparticular,therecommendationspresentedonthefollowingpagesrelatetothefollowing:

TheDowntownBoundaryanditsStructure;

EstablishingMinimumDensityTargets;

EstablishingSpecificMixed‐UseDensityTargets;

EstablishingaNewRetailStructure;and,

ProvidingIncentivesforIntensificationandNon‐ResidentialDevelopment.

Currently,theCity’scoreisdelineatedbytwoboundaries:theProvincialUrbanGrowthCentre(UGC)boundary,andtheCity’sDowntownMixedUseCentreboundary.TheProvinciallydesignatedUGCboundaryisanirregularboundarythatextendsacrosspartsoftheDowntownproper,mainlyalongtheMapleAvenue,LakeshoreRoad,andBrantStreetcorridors,terminatinginthenorthwestatProspectStreet.TheCity’sDowntownMixedUseCentreboundarycoversabroaderareaassociatedwiththeDowntown,boundedbyBaldwinStreetinthenorthwest,extendingouttoClarkeAvenue/MapleStreet/theQEWinthewestandsouthwest,androughlyTorrenceStreetintheeast.

InsupportoftheongoingworkregardingtheCoreCommitmentfortheDowntown,theCityhasidentifiedtheneedtorationalizetheDowntownboundaries.Aspartofthisexercise,itisimportanttoconsider,whatisthepurposeofestablishingaboundary?Fromacommunityplanningperspective,aboundaryisusedtoidentifyanareathatfunctionsasasystemand/orhascommonbuiltformcharacteristicsand


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transportationinfrastructure,andtothendevelopaframeworkformanagingchange(i.e.growth)overtimeinawaythatpreservestheuniquecharacteristicsofthearea,whileenhancingthephysicalandsocialfabricoftheestablishedcommunity.Fromacommercialplanningperspective,boundariesareusedtoidentifyhubsofcontiguousretailandothercommercialactivitythatfunctionasasystemand/orhavecommoncharacteristicsintheirbuiltformand/ortheytypesofproductsandservicesthatareoffered.Thecommercialplanningboundarymayalsoreflectthedestinations(homeaddresses)ofcustomers.

Usingthesecriteria,strategicconsiderationshouldbegiventogenerallymaintainingtheCity’sexistingboundaryfortheDowntown,withsomeminormodifications(e.g.removingthesouthernmostportionofthecurrentdesignationalongtheBurlingtonSkywaywherethelandusesandblockconfigurationsareinconsistentwiththeremainderofthecore).TooperationalizetheUGCdesignation,strategicconsiderationshouldalsobegiventoidentifyinganurbancorridornorthwestoftheDowntownalongBrantStreet,andtorevisitingtheprecinctdesignationswithintheDowntowntoensuredensitydistributionsareinformedbytheUGCboundary(i.e.theareawherethehighestdensitiesshouldbedirected).

EXISTINGBOUNDARIESFORDOWNTOWNBURLINGTON PROPOSEDDOWNTOWNBOUNDARY


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CoreCommitmenthasdefinedeightprecinctswithinthedowntowncore.Thisworkshouldberefinedinpolicybyrecognizing:

CoreandMainStreetRetailAreas,whichwouldgenerallybeconcentratedaroundthehistoricmainstreetshoppingdistrict(i.e.,BrantStreetandotheradjacentstreets);reflectingthecommercialhierarchyindowntown;

OpportunityAreas,whereopportunitiesforfuturedevelopmenthavebeenidentifiedorareanticipated;

Stable/EstablishedResidentialAreas,includingthoselocatedtotheimmediateeastandwestofthecommercialcoreofthedowntown;

TransitionAreas,includingthestretchofBrantStreetdirectlynorthofthecorecommercialareaofdowntown,aswellaseastandwestofBrantStreetonLakeshoreRoad;and,

Tourist&CulturalAreas,whichwouldbefocusedalongthewaterfrontandnearotherexistingorpotentialnewculturalamenitiesinthedowntownwithrestrictionsonprivatedevelopment.

Currently,theOfficialPlanincorporatestheProvinciallymandatedminimumdensitytargetof200peopleandjobsperhectarefortheDowntownasawhole.StrategicconsiderationshouldbegiventodevelopingminimumdensitytargetsfordifferentareasoftheDowntowntofacilitatedensitydistributionsthatreflecttheexistingandplannedbuiltformandblockconfigurations,inlinewiththeUGCandmobilityhubdesignations.TheseminimumdensitytargetscouldbeintegratedwithexistingheightanddensitypoliciesforthevariousDowntownprecinctsandwouldhelptocomprehensivelyplanforandmonitortheintensificationofBurlington’sDowntown.

Tooptimizetheuseoftransitandstrengthenthearea’seconomicbase,oneoftheobjectivesfortheDowntownistoattractmoreofficeandinstitutionallanduses.Beyondeconomicdevelopmentactivities,thereareanumberofpolicystrategiestheCitycouldconsidertoencouragethistypeofdevelopment,includingestablishingmixedusetargets(i.e.%requirements)forthedifferentprecincts,andestablishingajobs‐to‐residentstargetratio.

WithregardtocommercialusesintheDowntown,strategicconsiderationshouldbegiventopermittingretailandservice‐‐‐relatedusesmorebroadlythroughoutallareasoftheDowntown.Currently,commercialusesarenotpermittedthroughoutmuchofthearea,andthisisinconsistentwiththecharacteristicsofacompleteurbancommunity.TobetterintegratecommercialusesthroughoutDowntownneighbourhoods,retailpermissions/requirementscouldbede‐‐‐linkedfromtheprecinctdesignationsandre‐‐‐introducedthroughnew“retailprioritystreets”designations.


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InadditiontoestablishingmixedusetargetsfordifferentprecinctsintheDowntown,theCityshouldconsideridentifyingaPrimaryOffice/InstitutionalCoreArea,andprovidingincentivesfornewofficedevelopment,suchasreducedautomobileparkingstandardsandreducedparklanddedicationrequirements.TheCitycouldalsoconsideralinkagerequirement,wherebyapprovalforresidentialdevelopmentistiedtotheinclusionofnon‐‐‐residentialdevelopmentwithinthedevelopmentsite.

SUMMARY

Insummary,DowntownBurlingtonisgenerallyfunctioningwellandhastheemotionalsupportofresidentsacrosstheentireCity.Itismulti‐functionalprovidingforboththelocalneedsofdowntownbusinessesandresidents,aswellasmorebroadercivicfunctions,suchasaculturalandrecreationcentre,thecentreofgovernmentandaplacefortheCity’sfestivals.

Futurepolicydirectionshouldensurethatdowntowncancontinuetofulfillthesefunctionseffectively,whileatthesametimeensuringthatthegrowthmandatedbytheProvincialGrowthPlancanbeaccommodatedinamannerwhichenhancesratherthandetractsfromtheexistingcharacteristicscurrentlyenjoyedbyBurlingtonresidents.


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1 BACKGROUND

urbanMetricsandThePlanningPartnershiphavebeenretainedbytheCityofBurlingtontoundertakeaCommercialStrategyStudy,whichisbeingpreparedaspartoftheCity’songoingOfficialPlanReviewprocess.

TheCommercialStrategyStudyisintendedtore‐evaluatethecommercialpoliciesoftheCityofBurlingtonOfficialPlaninordertoaddressStrategicPlandirections,andtoensurethat:

theCity’spoliciesaddresscurrentandfuturecommerciallanduseneeds;

commercialareascanbeeffectivelyandefficientlyplanned;

policiesarereflectiveofrecentchangestocommerciallanduseplanningandothertrends;and,

policiescanbeeffectivelyimplemented.

OneareaoffocusfortheCommercialStrategyStudyistheCity’sDowntown,whichisanintegralcomponentofthecurrentcommercialsysteminBurlington.TheDowntownisalsoanareawhichhasbeenoverlaidwithanUrbanGrowthCentredesignation,assetoutintheProvinceofOntario’sGrowthPlanfortheGreaterGoldenHorseshoe.WithintheUrbanGrowthCentre,planningmustaccommodatespecificpopulationandemploymentdensitytargets.

ThisInterimCommercialStrategyDiscussionPaperrepresentsonecomponentofthebroaderCommercialStrategyStudybeingundertakenbyurbanMetricsandThePlanningPartnership.ItfocusesonthefollowingkeytopicsrelatingtoDowntownBurlington:

ThecurrentstateofDowntownBurlington;

ThevariousfunctionsservedbyDowntown;

HowwellDowntowniscurrentlymeetingtheneedsoftheCity;

TrendsandotherfactorsthatwillinfluencethefuturestateoftheDowntown;and,


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Howwellcurrentlanduseplanningpoliciesaresupportingitsvibrancy.

AspertheTermsofReference,“DowntownBurlington”hasbeendefinedastheareacentredonBrantStreet;generallyextendingfromLakeOntariointhesouthtoFairviewStreetinthenorth;betweentheQueenElizabethWay(QEW)andSmithAvenueinthewestandeast,respectively1.(SeeFigure1‐1).ThisAreaincludesalloftheDowntownMixedUseAreaasdefinedintheOfficialPlan,togetherwithanortherlyextensionalongBrantStreettoFairviewStreet.ThisareaislargerthantheProvincialGrowthCentreBoundaryinthat:itgenerallyextendsfurthernorthalongBrantStreet;includesthelowdensityneighbourhoodseastandwestofBrantStreet;andextendssoutherlyalongBurlingtonBeach.

1However,alsoasperthetermsofreference,aspartofthebroaderCommercialStrategyStudy,theboundariesofdowntownshouldbeevaluatedandredefinedifappropriate.


3

FIGURE1‐1:DOWNTOWNBURLINGTONBOUNDARIES


4

2 CURRENTSTATEOFDOWNTOWN

2.1 COMMERCIALSPACEINVENTORYINDOWNTOWNBURLINGTON

urbanMetricscompletedadetailedinventoryofalltheretailandservicecommercialspacelocatedinDowntownBurlingtoninOctober2012.Basedontheresultsofthisinventory,DowntownBurlingtoncurrentlycontainsapproximately1.09millionsquarefeet(101,000squaremetres)ofretail/servicecommercialspace.

AssummarizedinFigures2‐1to2‐3,morethantwothirds(69.3%)ofthisspaceiscurrentlytenantedbyservice‐basedcommercialfacilities,suchasBanks;FoodServicesandDrinkingPlaces(i.e.,full‐servicerestaurants,fast‐foodrestaurants,bars,pubs,andcafes),PersonalCareServices(i.e.,hairandbeautysalons,barbershops,tattooparlours,laundryservices)andHealthCareservicefacilities(e.g.,doctors,dentists,andotherofficesofhealthpractitioners).

Retailtenantscurrentlyrepresentonefifth(19.5%)ofthetotalcommercialspaceinDowntownBurlington.Bycomparison,retailtenantscompriseapproximately56%oftheinventoryfortheentireCity.

Similartomanydowntownshoppingdistricts,themajorityofdowntownretailspaceistenantedbyApparelandAccessoriesandFurniture,HomeFurnishingsandElectronicsstores.Infact,thesetwostorecategoriesaccountforapproximatelytwothirds(67.2%)ofthetotalretailspaceinDowntownBurlington,andamounttosome105,100squarefeetcombined.

Downtownsaremorelimitedintermsoftheirabilitytoattractthefullrangeofstorecategoriesfoundinanurbanmarketduetolimitationswithregardstolandarea,spaceandunitconfigurations.Storesthatoftenhavedifficultylocatingindowntown’sinclude:

Chainswithlargeandinflexiblefloorplates(e.g.departmentstores;manybigboxstores;warehousemembershipclubs;furnitureandappliancesuperstores;andbuildingsupplycentres.

Storeswhich,duetothenatureoftheiroperationsandmerchandise,relyalmostexclusivelyonautomobiletraffic(e.g.manyfurnitureandappliancestores;automotivepartsandrepairoutlets;homeandautostores;and,

Chains,whichhaveanexclusiveaffinitytolocatinginenclosedmallsorpowercentres.


5

InthecaseofDowntownBurlington,thevastmajorityofretailunitsareunder5,000squarefeet,withsome65%under2,000squarefeet.Withonlyafewexceptions,theunitsover5,000squarefeetareoccupiedbyspecializedusessuchasrestaurants,officesorpublicservicesthatwouldnotlendthemselvestoretailuses.

Forthesereasons,itwouldbedifficulttosignificantlychangethegeneralretailmixindowntownBurlington,althoughtherearecertaincategoriesthatcouldbeexpandedinkeepingwithcurrenttrendsinotherdowntownareas,including:amedium‐to‐largescalepharmacy;electronics;officesupplies;sportinggoods/sportsapparel;dollarstores;giftandspecialtyretailoutlets.

FIGURE2‐1:DOWNTOWNESTABLISHMENTSBYSIZEANDCATEGORY

Source:urbanMetricsinc.

0 ‐ 1,999 2,000 ‐ 4,999 5,000 +Food Store Retail (FSR) 4 7 1 12Non‐Food Store Retail (NFSR) 42 25 3 70Other Retail 0 2 0 2Services 188 81 28 297Vacant 70 12 4 86Total Retail & Services 304 127 36 467

% of Total 65.1% 27.2% 7.7% 100.0%

RETAIL/SERVICE CATEGORY TOTALSTORE SIZE (sq ft)


6

FIGURE2‐2:INVENTORYOFDOWNTOWNCOMMERCIALSPACEBYSUB‐CATEGORY

Retail/Service Category Total Floor Area (SF)

% of Total Number of Businesses

% of Total

RETAIL

Food Store Retail (FSR)Supermarkets and Grocery 26,300 2.4% 1 0.2%Convenience and Specialty Food 22,955 2.1% 11 2.4%

SUB‐TOTAL ‐ Food Store Retail (FSR) 49,255 4.5% 12 2.6%

Non‐Food Store Retail (NFSR)Pharmacies & Personal Care 12,000 1.1% 6 1.3%General Merchandise 11,850 1.1% 4 0.9%Apparel and Accessories 58,300 5.4% 34 7.3%Furniture, Home Furnishings and Electronics 46,800 4.3% 9 1.9%Miscellaneous Retail 23,833 2.2% 15 3.2%Building and Outdoor Home Supplies 3,500 0.3% 2 0.4%Automotive ‐ 0.0% ‐ 0.0%

SUB‐TOTAL ‐ Non‐Food Store Retail (NFSR) 156,283 14.4% 70 15.0%

Other RetailLiquor, Beer and Wine Stores 6,400 0.6% 2 0.4%

SUB‐TOTAL ‐ Other Retail 6,400 0.6% 2 0.4%

SERVICES

Finance 33,000 3.0% 5 1.1%Health Care 121,538 11.2% 48 10.3%Cultural, Entertainment and Recreation 69,800 6.4% 16 3.4%Food Services & Drinking Places 150,866 13.9% 55 11.8%Consumer Goods Rental 2,700 0.2% 1 0.2%Personal and Household Goods Repair 4,000 0.4% 1 0.2%Personal Care Services 76,000 7.0% 51 10.9%Selected Civic and Social Organizations 81,563 7.5% 18 3.9%Social Services 4,300 0.4% 4 0.9%Other Services 209,310 19.3% 98 21.0%

SUB‐TOTAL ‐ Services 753,077 69.3% 297 63.6%

VACANT

Vacant 121,684 11.2% 86 18.4%SUB‐TOTAL ‐ Vacant 121,684 11.2% 86 18.4%

GRAND TOTAL 1,086,699 100.0% 467 100.0%


7

FIGURE2‐3:DOWNTOWNSPACEINVENTORY(SQUAREFEETGLA)


NFSR=Non‐foodStoreRetail

FSR=FoodStoreRetail

FSR49,255 5%

NFSR156,283 14%

OTHER RETAIL6,400 1%

SERVICES753,077 69%

VACANT121,684 11%


8

2.2 CHANGEINDOWNTOWNCOMMERCIALSPACE2002‐2012

Figure2‐4summarizesthetotalchangeincommercialspaceinDowntownBurlingtonbetween2002and2012byretail/servicesub‐category.Thedatafor2002isbasedontheresultsofacommercialinventoryofDowntownBurlingtonthatwasundertakenbyRobinDee&AssociatesaspartoftheCity’spreviousOfficialPlanReviewRetailCommercialStudy(May2003).Thegeographicareasinventoriedin2002and2012areidentical.

Asshown,DowntownBurlingtonexperiencedaslightincreaseincommercialspaceduringtheindicatedperiod,withthemostsignificantgrowthintheservicesector;particularlytheMedical/DentalandRestaurantandFast‐Foodsubcategories.

Overall,theamountofretail/servicecommercialspaceinDowntownBurlingtonincreasedby18.9%between2002and2012;representinganaverageannualgrowthrateof1.9%.

Theoverallincreaseindowntowncommercialspacereflectsprimarilynewadditionsthroughnewconstructionorreuseofspace,asthetotalamountofvacantspacehasremainedrelativelystaticalthoughtherehasbeenconsiderablere‐leasingactivitysince2002.Onlyabout10%ofthevacantspacerecordedin2012wasinthesameunitsvacantin2002.

Inouropinion,theincreaseinoccupiedcommercialspaceoverthisperiodreflectsanumberoffactors,including:publicandprivateinvestmentinthewaterfrontandthecore;overallgrowthoftheCityofBurlington;andpotentiallychangestothelocalandProvincialhealthcaredeliverysystem,whichhasincreasedtheneedfornon‐hospitalrelatedmedicalservices.


9

FIGURE2‐4:CHANGEINDOWNTOWNCOMMERCIALSPACE2002‐2012(SQUAREFEET)GLA


2.3 VACANTCOMMERCIALSPACE

Asindicatedinthefigureonthepreviouspage,thecurrentretailandservicecommercialvacancyrateinDowntownBurlingtonis11.2%.

Althoughthisisarelativelyhighvacancyrate–with“typical”or“normal”vacancyratesrangingbetween5.0%and8.0%–itisimportanttonotethattheDowntownBurlingtonratehasdecreasedsomewhatoverthepastdecade.Since2002,forexample,thevacancyrateinthisareahasfallenby1.7%fromahighofnearly13%.

Furthermore,itisevidentthatmostofthevacantspaceinDowntownBurlingtonisconcentratedinthreeagingcommercialplazas;VillageSquare(422PearlSt),TudorSquare(2022–2028CarolineStreetand515JohnStreet)andBurlingtonSquarePlaza(760BrantStreet).This

2002 2012 Change

Total Retail/Service Commercial Space 913,000 1,086,000 18.9%

Food and Drug Space 47,000 61,000 29.8%

All Other Retail Space 141,000 151,000 7.1%

Restaurant/Fast Food Space 114,000 151,000 32.5%

Banks/Credit Unions/Trust Companies 37,600 33,000 ‐12.2%

Medical/Dental Services 68,400 121,500 77.6%

All Other Services Space 388,000 447,500 15.3%

Vacancy Rate (%) 12.9% 11.2% ‐1.7%


10

clusteringofvacantcommercialspaceishighlightedonFigure2‐5,whichillustratestherelativesizeandlocationofallthevacantcommercialunitsinDowntownBurlington,asofOctober2012.

Whencombined,thesethreecommercialplazascontainatotalofsome76,200squarefeetofvacantcommercialspace;representingwelloverhalf(62.6%)ofthetotalvacantspaceinDowntownBurlington.Excludingthesethreecentres,thevacancyrateforthebalanceofDowntownBurlingtonisonly4.8%;averyhealthylevel.Futurecommercialspacegrowthrequiredtosupportnewdowntownresidentsandbusinesseswill,therefore,generallystillneedtobeaccommodatedthroughnewbuildingconstructionratherthantheleaseupofexistingvacantspace.

Overall,therefore,itisevidentthattherelativelyhighvacancyrateinDowntownBurlingtonisskewedbyonlyasmallnumberofagingcommercialplazas,whichareinneedofupdating.Otherwise,commercialvacancyratesinDowntownBurlingtonremainatveryhealthylevels.

Furthermore,itisimportanttonotethatatleasttwooftheoldercommercialplazasidentifiedareundergoingaperiodoftransition;withredevelopmentand/orrevitalizationeffortsexpectedatthesesitesinthenearfuture.

Infact,anactivedevelopmentapplicationfortheblockcontainingTudorSquareat515JohnStreetisexpectedtoresultinacompleteredevelopmentofthissite.Similarly,theVillageSquarecomplexat422PearlStreetiscurrentlyforsale,andmaybesubjecttosomeformofrevitalizationorredevelopmentbyfutureownersoftheproperty.

RecognizingthattherewillbeaneedforadditionalcommercialspacetosupportpopulationandemploymentgrowthrequiredbytheProvince’sUrbanGrowthCentretargetsandthattherearelimitedopportunitiesfornewdevelopmentindowntown,itwillbeimportantthatatleastaportionoftheretailspacelostinTudorSquareandVillageSquareprojectsisreplacedaspartofanyredevelopment/revitalization.ThelocationandinternalspaceconfigurationofBurlingtonSquarehasneverbeenconduciveforretailspace.Inthelongterm,inanyredevelopmentofthissite,morestreetrelatedcommercialspaceshouldbeconsidered.AsBurlingtonSquareitoutsideofthedowntownpedestrianarea,therequirementforstreetrelatedretailspacewillhavetotakeintoconsiderationtheultimatelanduseconfigurationinthevicinityofthesite.


11

FIGURE2‐5:SIZEANDLOCATIONOFVACANTCOMMERCIALUNITS


12

2.4 DOWNTOWNCOMMERCIALSPACEINCOMPARABLECOMMUNITIES

Figure2‐6providesacomparisonofthetotalamountofretailandservicespacelocatedinBurlington’sdowntownrelativetoothercomparablecommunities,includingneighbouringOakville,aswellasWaterlooandWhitby.ThesecommunitieswerechosenbecausetheyareaffluentGTAandareamunicipalitieswithhistoricdowntownsandwithsimilarpopulationstoBurlington.Forreference,the2011populationforeachofthesecommunities–plusthenumberofindividualsresidingwithinaonekilometreradiusofeachofthedowntownsinthesecommunities–havealsobeenprovided.

Whitby’sdowntowncanbedescribedas“functional”.Ithasastrongneighbourhoodservingfunctionwithalargeconveniencecommercialfunction.Itstourismandculturalbaseislimited,althoughtherecentadditionofanewcentrallibraryhasactedasananchor.

Oakville’sdowntownplayslargelyaspecialtyretailandservicefunctionfortheaffluentOakvillecommunity.Itcontainsnosupermarketsandcontainsalimitedselectionoflocalservingretailoutlets.Nonethelessitishasperformedthisfunctionsuccessfullywithreasonablevacancylevels.Althoughitsuffersfromalackofcivicadministrationpresence,ithasbenefitedfromsignificantdowntowninvestment.

Waterloo’sdowntown,likedowntownBurlingtonplaysavarietyoffunctions,cateringtoboththelocalneedsofthegrowingdowntownpopulationandprovidingamoreregionalspecialtyretailfunction,inpartthroughtheredevelopmentofWaterlooTownCentre.LikeBurlington,theCity’sgreenfieldpotentialisnearingcapacity.Unliketheothercores,DowntownWaterloocaterstothelargesurroundinguniversitystudentpopulation.

Asshown,Burlingtoncontainsfarmorecommercialspaceinitsdowntownthananyoftheothercommunitiesidentified.Itisimportanttonote,however,thatDowntownBurlingtonalsocontainsalargerresidentialpopulation,andbasedonon‐streetcustomersurveys,itdrawssupportfromthepopulationintheadjoiningcommunities,includingHamiltonandOakville.Inaddition,thesurveysalsopointedtoalargewalk‐inpopulationfromtheadjoiningneighbourhoods.

Infact,whenconsideringtheamountofcommercialspaceinDowntownBurlingtononapercapitabasisfortheentireCity,itisnearlyidenticaltothatofbothWaterlooandWhitby(i.e.,6.2,6.0,and6.1squarefeetpercapita,respectively).

Furthermore,itisalsointerestingtonotethatDowntownBurlingtoncontainsacomparableamountofretailspace(i.e.,food/drugandotherretailstores)toothercommunities,whereasitcontainsanabove‐averagesupplyofservice‐basedcommercialfacilities.


13

Relativetothepopulationwithinonekilometre,DowntownBurlingtonhasabout25%morespacethanWaterlooandOakvilleandasimilarsupplyasDowntownWhitby,whichmayrelatetotheimportanceofthelocalservingretailfunctioninBurlingtonandWhitbycomparedtotheotherdowntowns.

FIGURE2‐6:COMPARISONOFDOWNTOWNCOMMERCIALSPACEWITHCOMPARABLECOMMUNITIES

*Populationbasedon2011Census

Burlington Oakville Waterloo Whitby

2011 Population* 175,779 182,520 98,780 122,022

Population Within 1 Kilometre of Downtown* 10,686 7,467 7,852 7,898

Total Retail/Service Commercial Space (sq ft) 1,086,000 585,000 595,000 748,000

Food and Drug Space (sq ft) 61,000 22,000 51,200 99,000

All Other Retail Space (sq ft) 151,000 149,000 208,000 140,000

Restaurant/Fast Food Space (sq ft) 151,000 54,200 127,000 78,000

All Other Services Space (sq ft) 602,000 310,000 174,000 392,000

Vacancy Rate (%) 11.2% 8.5% 5.8% 5.3%

Downtown Commercial Space Per City Resident (sq ft per capita)

6.2 3.2 6.0 6.1

Downtown Commercial Space Per Population within 1 KM (sq ft per capita)

101.6 78.3 75.8 94.7


14

2.5 OFFICECOMMERCIALSPACE

ThemajorityofofficespaceindowntownBurlingtoniscontainedinstreetfront/plazaunits,smallbuildings,andsecondfloorunits.

AsindicatedinFigure2‐7,DowntownBurlingtoncontainsavarietyoflocal‐servingofficespace,includingapproximately33,000squarefeetoffinancialservicesspace(e.g.,banks);121,500squarefeetofhealthcarespace(e.g.,officesfordoctorsandotherhealthcareprofessionals);andupwardsof85,000squarefeetofspacetenantedbysocialserviceofficesandothercivicandsocialorganizations.Inaddition,the209,000squarefeetofOtherServicesspaceidentifiedearlieriscomprisedofamixofofficesforlawyers,realestateprofessionals,insurancecompanies,financialadvisors,andotherprofessional,scientificandtechnicalservicetenants.

AdetailedsummaryofthedistributionofthistypeofofficespaceisincludedinFigure2‐7.Asshown,DowntownBurlingtoncurrentlycontainsatotalofapproximately450,000squarefeetofservice‐basedofficespace.

Inadditiontothisspace,basedona2012StudypreparedforBurlingtonEconomicDevelopmentbyDeloittes2,DowntownBurlingtoncontainsanestimated130,000squarefeetofClass“A”officespaceintwobuildings–390BrantStreet(SimsSquare)and760BrantStreet(BurlingtonSquare),aswellaslargeadministrative/governmentfunctions,includingCityHalland414LocustStreet.ItisimportanttorecognizethatClassAofficespace,inthiscontext,isasubjectiveandterm,andrelatesprimarilytothesizeofthebuildingsclassifiedrelativetothecompetitioninthelocalmarket.

Overall,however,theproportionofofficespaceinthedowntownrepresentsasmallfractionofthetotalspaceintheCity,whichhasbeencalculatedat4.3millionsquarefeetbasedonColliersQ3TorontoOfficeMarketReport.

Insummary,whiledowntowndoescontainanumberofofficeprojectsthatserveasimportantdrawsandactivitygenerators,itisnotamajorofficecentrewithintheCityasawhole.

2OfficeandRetailMarketsinDowntownBurlington,Deloittes,May2,2012.


15

FIGURE2‐7:DISTRIBUTIONOFSERVICEBASEDOFFICESPACEBYSUB‐CATEGORY


Service Category Total Floor Area (SF)

% of Total Number of Businesses

% of Total

Finance (Banks & Credit Unions) 33,000 7.3% 5 2.9%

Health Care Services 121,538 27.0% 48 27.7%

Civic & Social Organizations 81,563 18.1% 18 10.4%

Social Services 4,300 1.0% 4 2.3%

Other Services 209,310 46.5% 98 56.6%Other Financial Services (e.g., advisors, mortgage brokers) 26,130 5.8% 19 11.0%Accountants, Tax Preparation Services, Bookings, Payroll 8,300 1.8% 8 4.6%Offices of Lawyers 12,900 2.9% 8 4.6%Other Legal Services 1,100 0.2% 1 0.6%Offices of Real Estate Agents and Brokers 15,752 3.5% 7 4.0%Insurance Agencies and Brokerages 5,500 1.2% 5 2.9%Management Consulting Services 3,300 0.7% 5 2.9%Public Relations Services 3,864 0.9% 2 1.2%Research & Development 4,800 1.1% 2 1.2%Survey and Mapping Services 500 0.1% 1 0.6%Other Professional, Scientific and Technical Services 110,222 24.5% 23 13.3%Other Scientific and Technical Consulting 1,000 0.2% 2 1.2%Employment Services 6,402 1.4% 6 3.5%Computer Systems Design and Related Services 1,700 0.4% 1 0.6%Advertising Agencies 700 0.2% 1 0.6%Graphic Design Services 900 0.2% 1 0.6%All Other Services 6,240 1.4% 6 3.5%

GRAND TOTAL 449,711 100.0% 173 100.0%


16

2.6 FUTUREDEVELOPMENTSITES

MostofthelandsinDowntownBurlingtonhavealreadybeendevelopedforavarietyoflanduses,includingexistingretail/servicecommercialfacilities,officebuildings,establishedlowdensityresidentialneighbourhoodswithpredominantlydetachedhousing;residentialapartmentbuildings(e.g.,condominiumsandsenior’sresidences),aswellascultural,entertainment,andrecreationalfacilitiesalongthewater’sedge.

DowntownBurlingtondoes,however,containanumberofundevelopedandunder‐developedproperties,whichofferthepotentialfornewdevelopment.AmongthemostnotableofthesesitesarethetwoCity‐ownedparkinglotslocatedimmediatelyeastofBrantStreetbetweenJamesStreetandPineStreetinthenorthandsouth,respectively(i.e.,ParkingLots“4”and“5”).

Together,thesetwositesincludeatotalofapproximately1.5acres(0.6hectares)ofdevelopablelandarea.

Similarly,thedowntownalsocontainsanumberofagingstripretailsitesandsmallercommercialcentres,whichcouldpotentiallysupportnew,moreintensifieddevelopmentincomingyears.Fromaplanningperspective,thesesitesshouldberecognizedaspossiblecandidatesformixed‐useintensifieddevelopment.However,intermsofaddressingtheshort‐termsupplytheyshouldbeconsideredmorespeculativethanthesiteshighlightedonthefollowingmaps.

Figures2‐8and2‐9illustratethelocationofsomeofthespecificsitesthatareexpectedtosupportnewcommercialdevelopmentinthenearfuture:

ParkingLot4–municipally‐ownedparkinglotavailablefornewdevelopment;

ParkingLot5–municipally‐ownedparkinglotavailablefornewdevelopment;

TudorSquaresite–proposedcommercialdevelopmentofapprox.21,500sqft(2,000sqmetres)GFA;

392‐398PearlStreet–proposedsenior’shousingresidentialdevelopmenttoincludeapprox.5,400sqft(500sqmetres)commercialGFA;and,

2042LakeshoreRoad–proposeddevelopmenttocontainamixofuses,includinganestimated11,000sqft(1,025sqmetres)ofcommercialspace.


17

Inadditiontothesesites,theBrantStreetspinenorthofCaroline,islargelycomprisedoflowdensityuses,includingdetached‐homes,autodealershipsandlow‐riseresidentialandcommercialbuildings,thatinthelongertermhavethepotentialforintensification.ThereisalsoasmallsiteonthenortheastcornerofGhentandBrant,diagonalfromBurlingtonSquare,currentlyusedasaparkinglotthatmayhavedevelopmentpotential.

FIGURE2‐8:LOCATIONOFFUTUREDEVELOPMENTSITES(SOUTH)


18

FIGURE2‐9:LOCATIONOFFUTUREDEVELOPMENTSITES(NORTH)


19

3 FUNCTIONSOFTHEDOWNTOWN

DowntownBurlingtoncurrentlycontainsawiderangeoflandusesandservesavarietyofdifferentfunctions;bothlocallyandwithinthecontextoftheCityasawhole.

Thedowntownservesasanimportantplacefor:

Shopping–representingthecommercialcoreoftheCityandcontainingapproximately1.1millionsquarefeetofretailandservicecommercialspace;

Working&Learning–supportingawiderangeofemploymentactivities,particularlyofficeandretail/servicecommercialbasedemployment,withanumberofmajoremployers,includingCityHallandJosephBrantMemorialHospital.

Living–containingamixofbothestablishedresidentialneighbourhoodswithpredominantlydetachedhousing,aswellasnewermediumandhighdensitycondominiumapartmentresidentialdevelopments;

Playing–offeringopportunitiesforavarietyofleisure,recreationalandentertainmentactivities,includingthosefocusedalongthewaterfrontandotherslocatedatvariousculturalattractionsthroughoutthedowntown(e.g.,BurlingtonPerformingArtsCentre,BurlingtonArtCentre,etc.);

CivicPresence–containingCityHallandotherimportantmunicipalandlocalinstitutions.

CommunityActivities–providingspaceforresidents,employeesandvisitorsofBurlingtontogatherandservingasthefocalpointofmanyoftheCity’sfestivalsandcommunityevents,and,

Transportation–containingBurlingtonTransit’sJohnStreetBusTerminal,aswellassupportingavarietyofothermodesofactivetransportation(e.g.,walkingandbiking)viatheCity’swaterfronttrailsystem.


20

3.1 POPULATIONANDEMPLOYMENT

In2006,Burlington’sUrbanGrowthCentre–whichgenerallycorrespondstothehighestintensityportionsofDowntownBurlington–containedatotalofsome8,000residents.Similarly,theUrbanGrowthCentresupportsatotalofsome6,000employeesinthedowntownatthistime.Asperthe2011Census,theUrbanGrowthCentrehasincreaseditspopulationbyapproximately10%.

Withatotallandareaofsome117hectares,thistotalof14,000residentsandjobsintheUrbanGrowthCentrerepresentsadensityof120residentsandjobsperhectare.

BasedontheintensificationtargetssetoutintheProvince’sGrowthPlan,however,theCityofBurlingtonisrequiredtoplanforadensityof200residentsandjobsperhectareby2031inthisarea.

ThissuggeststhatthetargetdensityforDowntownBurlingtonin2031wouldincludeatotalof23,400residentsandjobscombined;representinganincreaseofapproximately9,400from2006levels(i.e.,growthofmorethan67%).

TheJanuary,2008BurlingtonIntensificationStudy,basedonasite‐by‐sitereviewestimatesthatsome2,200unitswithapopulationof3,750couldbedevelopedintheUrbanGrowthCentre.ThisfiguremaybelowinrelationtotheProvincialGrowthPlantarget.AspertheGrowthPlan,between2012and2031,theUrbanGrowthCentreitselfistargetedtoincreasefromatotalof14,000residentsandjobsin2006to23,400personsandjobsby2031,basedonadensitytargetof200personsandjobsperhectarein2031.Thisrepresentsgrowthofsome9,400personsandjobsoverthisperiod.BasedonCensuspopulationdata,itisestimatedthattheUrbanGrowthCentrepopulationin2006was7,600personsandtheworkforceisapproximately7,400.Thisrepresentsapopulation/employmentratioof54%/46%.Futuregrowthwilllikelybemoreheavilyorientedtoresidentialdevelopment.Thisisbecausethecurrentratioisheavilyinfluencedbyanumberoflarge‐scaleemployers,includingJosephBrantHospitalandBurlingtonCivicOffices,whichhavelimitedgrowthpotential.If75%ofdowntowngrowthiscomprisedofnewresidents,thiswouldresultinanincreaseofapproximately7,000newresidentsdowntownoragrowthof88%between2006and2031.BasedonCensusdata,between2006and2011,theDowntownpopulationgrewbysome800persons.Thiswouldresultinafuturegrowthbetween2011and2031ofapproximately6,200personsintheUrbanGrowthCentrealone.

Inotherwords,inordertoachievetheGrowthPlantarget,additionalopportunitiesmayneedtobeidentifiedbeyondthoseconsideredintheIntensificationStudy.


21

Thisgrowthwillhavesignificantimplicationsintermsofattractingandaccommodatingsufficientretailandservicesspacetoservethesenewresidentsandworkers.

3.2 DOWNTOWNON‐STREETINTERCEPTSURVEYRESULTS

urbanMetricsconductedsome300ofon‐streetinterceptinterviewsinDowntownBurlingtonduringSeptemberandOctober,20123.TheresultsofthissurveyprovideadditionalinsightastothecurrentroleofDowntownBurlingtonandthespecifictypesofactivitiesthatarebeingperformedinthisarea.

AsillustratedonFigure3‐1,interviewswerecompletedateachofthefollowingfourlocationswithinthecentralportionofDowntownBurlington.

Location1–IntersectionofCarolineStreet&BrantStreet(74responses,26%)

Location2–IntersectionofJamesStreet&BrantStreet(85responses,29%)

Location3–IntersectionofLakeshoreRoad&BrantStreet(64responses,22%)

Location4–IntersectionofElizabethStreet&PineStreet(VillageSquare)(73responses,25%)

3Thestatisticalmarginoferrorvariesdependingonthequestionandthepercentageansweringeachresponse.Inourexperience,overallthesamplesizeprovidesreliableresultsforthequestionsaskedandthesizeofthepopulation.


22

FIGURE3‐1:LOCATIONOFON‐STREETINTERCEPTSURVEYS


23

AsindicatedinFigure3‐2,thesampleincludedabalanceddistributionofmalesandfemalesfromallagegroups.

FIGURE3‐2:GENDERANDAGEDISTRIBUTIONOFSURVEYPARTICIPANTS

Male13647%

Female15653%

GENDER DISTRIBUTION

4.8%

5.8%

21.9%

14.7%

19.2%

16.1%

11.3%

6.2%

0.0% 5.0% 10.0% 15.0% 20.0% 25.0%

15‐19

20‐24

25‐34

35‐44

45‐54

55‐64

65‐74

75+

AGE DISTRIBUTION


24

AsillustratedinFigure3‐3,thesurveyrespondentsindicatedthattheyvisiteddowntownforavarietyofdifferentreasons.Onequarter(26%)oftherespondentsindicatedthattheylivedinDowntownBurlingtonandanadditional15%whoworkedthere.Allotherrespondentsindicatedthattheywereindowntowntoperformotheractivities,suchasshopping;dining;foranappointment,ortoholdbusinessmeetings.

ThisfurtherconfirmsthatDowntownBurlingtonisamulti‐functionalcentrewithnoonedominantactivity.

FIGURE3‐3:PRIMARYREASONFORVISITINGDOWNTOWNBURLINGTON

Live Downtown7526%

Work Downtown4515%

Shopping3813%

Appointment3612%

Dining269%

All Other7225%


25

Onlyabout13%ofrespondentstravelleddowntownspecificallytoshop.Aswithmostdowntownsnotaccessedbyrapidtransit,themajorityofretailfacilitiesexisttoservenearbyresidentsandemployees.Thebalancetendstoconsistofspecialtyretailwithamoreregionaldrawwhichbenefitsfromtheuniqueambienceprovidedbydowntownenvironments.

Figure3‐4illustratesthefrequencywhichsurveyrespondentsindicatedtheyvisitDowntownBurlington–intotalandspecificallyintheevening.Asshown,thereportedfrequencyofvisitswasquitehigh,withapproximately70%indicatingthattheyvisitDowntownBurlingtonmorethanonceaweekandanadditional12%visitingatleastonceaweek.Thisisparticularlynoteworthygiventhatonly41%oftherespondentsliveorworkinthearea.

BasedonthesurveyresultsillustratedinFigure3‐4,however,itisalsoevidentthatrespondentsvisitthedowntownmuchlessfrequentlyduringtheevening.Infact,morethanhalfoftherespondents(57%)indicatedthattheyvisitDowntownBurlingtonduringtheeveningatafrequencyoflessthanonceaweek;andnearlyonethird(30%)visitlessthanonceamonth.


26

FIGURE3‐4:FREQUENCYOFVISITSTODOWNTOWNBURLINGTON


69.8%

12.2%

9.4%

6.3%

2.4%

0.0% 10.0% 20.0% 30.0% 40.0% 50.0% 60.0% 70.0% 80.0%

More than once a week

Once a week

1 ‐ 3 times per month

Less than once a month

First time

FREQUENCY OF VISITS (TOTAL)

26.8%

16.8%

26.8%

23.0%

6.5%

0.0% 10.0% 20.0% 30.0% 40.0% 50.0% 60.0% 70.0% 80.0%

More than once a week

Once a week

1 ‐ 3 times per month

Less than once a month

Never

FREQUENCY OF VISITS (EVENING)


27

Nearlyhalf(47.4%)oftherespondentsindicatedthattheytravelledtoDowntownBurlingtonbyautomobile(i.e.,car,motorcycle,etc.)onthedaythattheyweresurveyed.

Overall,however,themajorityofvisitorssurveyedtravelledbysomemeansotherthanbycar;with44%eitherwalkingorridingtheirbicycleandapproximately8%takingpublictransit.

FIGURE3‐5:MODEOFTRANSPORTATIONDOWNTOWNONDAYOFSURVEY


47.4%

40.2%

3.8%

7.6%

0.0%

1.0%

0.0% 5.0% 10.0% 15.0% 20.0% 25.0% 30.0% 35.0% 40.0% 45.0% 50.0%

Car / Motorcycle

Walk

Bicycle

Public Transit

Taxi

Other


28

Surveyrespondentswerealsoaskedtorate–onascalefromonetoten–howimportantitwastothemthatDowntownBurlingtonperformanumberofpre‐definedfunctions;assummarizedinFigure3‐6.

Thefivetop‐ratedfunctionsrelatedtosocial,entertainment,culturalandrecreationalactivities.Forexample,itwasmostimportanttorespondentsthatthedowntownserveasaplacefortheCity’sfestivals,whichreceivedanaverageresponseratingof9.1outof10.

Similarly,itwasalsoimportantthatDowntownBurlingtonbetheculturalcentrefortheCity,aswellasserveasaplacetomeetfriends;takeout‐of‐townvisitors;andenjoyrecreationalandleisureactivities.Allofthesefunctionsreceivedanaverageratingofatleast8outof10.

Fromacommercialperspective,itisalsointerestingtonotethatrespondentssuggestedthatitwasmoreimportantthatdowntownbeaneighbourhoodshoppingdestinationthanaregionalshoppingdestination,withratingsof7.7and6.4outoften,respectively.


29

FIGURE3‐6:PERCIEVEDFUNCTIONSFORDOWNTOWN


9.1

8.7

8.6

8.4

8.2

7.7

7.5

6.4

0 1 2 3 4 5 6 7 8 9 10

A place for the City's Festivals

A place to meet friends

A place to take out‐of‐town visitors

A place to enjoy recreation and leisure activities

The cultural centre for the City

A neighbourhood shopping destination

A place for people to work

A regional shopping destination

HOW IMPORTANT IS IT THAT DOWNTOWN BURLINGTON BE...


30

3.3 CITYOFBURLINGTONTELEPHONEANDON‐LINESURVEYS

Atotalofsome885consumersurveys(364fully‐completedtelephonesurveys,261fully‐completedon‐linesurveysand260partiallycompleteon‐linesurveys4withBurlingtonresidentswerecompletedtodeterminetheexistingexpenditurepatternsofmunicipalresidents;establishtheexistingmarketsharesbeingcapturedbyCityofBurlingtonretailfacilities;andtheoutflowofsalestostoreslocatedoutsidetheCity.

ThefollowingchartssummarizetheresultsastheyrelatetoDowntownBurlington.Figure3‐7summarizestheshareofBurlingtonresidentsexpendituresbycategorymadeindowntown.Thehighestdowntownmarketsharerelatestorestaurants(23.6%),followedbyspecialtyfood(13.5%),miscellaneousretail11.3%,andfashion(10.9%).Theseresultspointtothestrengthofthedowntownasarestaurantdestination,andaplaceforspecialtyretail.

4Partiallycompletesurveyswereterminatedbytherespondentspriortoreachingtheendofthesurveydocument.Wheresufficientinformationtocategorizetherespondentwasavailable,someresultsfrompartiallycompletedsurveyswereincorporated.


31

FIGURE3‐7:DOWNTOWNBURLINGTONMARKETSHARES


Figure3‐8summarizestherespondentsassessmentofthesupplyofvarioustypesofretailstoresdowntown.Thecategoriesinwhichrespondentsfeltneededbolsteringthemostwerespecialtyfoodstores(36%ofrespondents)andsupermarkets(31%ofrespondents),illustratingtheimportanceoffoodtothedowntownretailmix.Theonlycategoryinwhichmorerespondentsindicated“toomany”ratherthan“needsmore”,wasfastfoodrestaurants.TheseresultsarenotthatdissimilarfromtherespondentsperceptionsofthesupplyofstorecategoriesfortheCityasawhole.Inbothcasesspecialtyfoodwasthehighestratedcategoryforwhichrespondentsperceivedmorestoreswereneededandfastfoodwasthecategoryforwhichrespondentsoverwhelminglyreportedwasoverrepresented.


32

FIGURE3‐8:AVAILABILITYOFEXISTINGSTORETYPESDOWNTOWN


Figure3‐9summarizesthefrequencywhichBurlingtonresidentsvisitdowntown.FortheCityasawhole,thefrequencyofvisitationwasmuchlowerthanfortherespondentsoftheon‐streetsurveys.Almost19%ofCityresidentsindicatedthattheynevervisitdowntownBurlington.Overall,over50%indicatethattheyvisitDowntowneitherneverorlessthanoncepermonth.Theseresultsindicatethemorelocalservingnatureofdowntown.ThemajorityofBurlingtonresidentstraveldowntowninfrequently,whereasthedowntownmarketismadeuplargelyofpersonsvisitingmorethanonceperweek.


33

FIGURE3‐9:FREQUENCYOFVISITSTODOWNTOWNBURLINGTON


Figure3‐10summarizesthemodeoftransportationmostfrequentlyusedbyBurlingtonresidentswhentravellingdowntown.UnliketherespondentstotheBurlingtonon‐streetsurveyinwhichover40%oftherespondentswalkeddowntown,almost80%ofBurlingtonresidentsasawholedrive.Only13%ofallresidentswalk.Theseresultsstresstheimportanceofparkingandvehicularaccessifthedowntownisgoingtoexpanditspenetrationintonon‐downtownneighbourhoods.

Alternatively,theseresultsincombinationwiththedowntownon‐streetsurvey,indicatethatdowntownresidentsaremuchlesslikelytodrivethantheBurlingtonpopulationasawhole.Astrategywhichfocusesonbolsteringthepopulationofdowntownanditsadjacentneighbourhoodswillreducethedemandfordowntownparking.


34

FIGURE3‐10:MODEOFTRANSPORTATIONDOWNTOWN


Figure3‐11summarizesBurlingtonresidents’satisfactionwithdowntownparking,intermsofprice,convenienceandadequacy.Asindicated,althoughthemajorityofresidentsindicatedthatparkingwasadequate,convenientandreasonablypriced,therewasstillasignificantproportionofrespondentswhohadamorenegativeperceptionsofdowntownparking.Forexamplealmosthalfoftherespondentsindicatedthattheamountofparkingspaceswasnotadequate.

Itisimportanttorecognizethatthereisaverysignificantperceptualcomponentinparkingrelatedquestions.Forexample,personswhotraveldowntowninfrequentlymaydosobecauseoftheirperceptionofparkingissues.Asaresult,theymaynotbeasfullyawareoftheparkingsupplyandalternativeparkingstrategiesassomeonewhotravelsdowntownonaregularbasis.Forexample,oftherespondentstothedowntownon‐streetsurvey,some77.5%indicatedthatparkingwasadequate,whileover70%indicatedthatitwasconvenientandreasonablypriced.


35

Theseresultssuggestthat,tosomeextent,parkingissuecanbeaddressedthroughbettercommunicationswiththeBurlingtonpopulationasawhole.Forexample,publishingon‐lineparkingmapswhichshownotonlythelocationandcostofdowntownparkingareas,butalsoaverageoccupancyratesduringvariestimesoftheday.Wheretechnologiesareavailable,up‐to‐the‐minuteparkingavailabilitycanbeshownonthewebsite.Apublicrelationscampaignaddressingparkingissuesandsolutionswouldalsoassistineasingmisperceptionsregardingtheavailabilityofdowntownparking.

FIGURE3‐11:SATISFACTIONWITHDOWNTOWNPARKING


Figure3‐12summarizesBurlingtonresidentsperceptionsoftheroleplayedbyDowntown.Whilethemagnitudeofscoresweregenerallyslightlylowerthanthosegivenbytherespondentstothedowntownsurvey,theoverallpatternofresultswassimilar.“AplacefortheCity’sfestivals”rankedhighestandaregionalshoppingdestinationrankedlowest.Downtownwasrankedlowerasaneighbourhoodshopping


36

destinationbyresidentsoftheCityasawholethanthedowntownsurveyrespondents.Onthewhole,however,thesefunctionsweregenerallysupportedbyboththerespondentstothedowntownon‐streetsurveyandresidentsoftheCityasawhole.

FIGURE3‐12:PERCEIVEDFUNCTIONSFORDOWNTOWN(SCOREOUTOF10)


37

3.4 DOWNTOWNTRADEAREA

ThefollowingprovidesanoverviewofthegeographicdistributionofpatronsofDowntownBurlington,basedonpostalcodeinformationobtaineddirectlyfromrespondentswhoparticipatedintheon‐streetinterceptsurveys.

AssummarizedinFigure3‐13,approximately80%oftherespondentssurveyedoriginatedfromwithintheCityofBurlington.Infact,themajorityoftheindividualssurveyed(69%)currentlyresideinthesouthernportionofBurlington(i.e.,southoftheQueenElizabethWay(QEW)andHighway403).

Asareference,in2002asimilarsurveyofdowntownshoppersindicatedthat70%livedindowntownBurlington,suggestingaslightcontractionofthetradearea.

Anadditional14%ofrespondentsoriginatedfromothernearbycommunities,including11%and3%fromvariouspartsofHamiltonandOakville,respectively.

FIGURE3‐13:GEOGRAPHICDISTRIBUTIONOFDOWNTOWNVISITORS


Location/Community# of Survey Respondents

% of Total

City of Burlington 232 79.5%Burlington South (south of Queen Elizabeth Way and Highway 403) 201 68.8%Burlington North (north of Queen Elizabeth Way and Highway 403) 31 10.6%

Other Nearby Communities 40 13.7%Town of Oakville 9 3.1%City of Hamilton 31 10.6%

All Other Locations 20 6.8%

Grand Total 292 100.0%


38

Figures3‐14and3‐15furtherillustratethegeographicdistributionofpatronsofDowntownBurlington,basedontheresultsoftheon‐streetinterceptsurveys.

Figure3‐14includesaplotofalltherespondentoriginlocations,andclearlyillustratestheclusteringofpatronsinandaroundthedowntownarea.

Similarly,the“heat”mapsonFigure3‐15illustratetherelativeintensityofareaswiththehighestnumberofsurveyrespondents.Forreference,itshouldbenotedthatareasinpurplerepresentarelativelylowconcentrationofrespondentoriginswhileorangeshadingrepresentsaveryhighconcentration.

AlthoughallofthesemapsconfirmthatthemajorityofDowntownBurlingtonpatronsoriginatefromwithinarelativelyshortdistanceofthecore,itisalsoimportanttonotethatthedowntownappearstoattractindividualsfromacrosstheCity;fromneighbouringcommunitiessuchasHamiltonandOakville,andfromasfarawayascommunitieslikeGuelphandMississauga5.

Asillustratedbythefollowingmap,thePrimaryTradeAreaforthedowntown,whichwouldrepresentthesourceofthemostcustomersonconsistentandongoingbasis,hasbeendefinedastheareaeastofKingRoad,southof403/QEW,westofWalkersLineandnorthofthelake.TheSecondaryTradeAreahasbeendefinedasthebalanceoftheCityofBurlington.

Asnotedpreviously,theCityortheentireTradeArearepresentssome80%ofcustomerorigins,whilethePrimaryTradeArearepresentssome63%ofdowntownvisitorswithapopulationof46,000.BasedonHaltonRegion’sBestPlanningestimates,thisisexpectedtoreach53,000by2031,largelythroughinfillandintensification.ThelargestshareofthisgrowthwouldoccurwithintheUrbanGrowthCentre.

5Thistypeofsurveymayslightlyoverestimatethewalk‐inpopulationasitmaynotcapturepersonswhodrivedirectlytoapointoforigindowntownanddonottaketypicalpedestrianrouteswherethesurveyswereconducted.


39

FIGURE3‐14:ON‐STREETINTERCEPTSURVEYS‐RESPNDENTORIGINS



40

FIGURE3‐15:CUSTOMERORIGINS‐ HEATMAPPING


41

FurthertotheTradeAreainformationpresentedabove,thefollowingprovidesamoredetailedsummaryoftheactualexpenditurepatternsofsurveyrespondents,basedontheresultsoftheon‐streetinterceptsurveys.

Inparticular,Figures3‐16and3‐17summarizethetotalamountthatsurveyrespondentsspent–orplannedtospend–inDowntownBurlingtononthedaythattheyweresurveyed.Forsimplicity,theseexpenditureshavebeensummarizedintooneofthreemajorretail/servicecategories,asfollows:

Restaurants&FastFood(i.e.,service‐basedfoodexpenditures);

Grocery&Food(i.e.,retail‐basedfoodexpenditures);and,

OtherRetail(e.g.,allotherretailexpenditures,includingthosemadeatapparel&accessoriesstores,homefurnishingsstores,giftshops,etc.).

Forreferencepurposes,theexpendituredatapresentedinthetablesonthefollowingpageshavealsobeensummarizedbyrespondentorigin,basedonthehomelocationofeachsurveyrespondent(i.e.,CityofBurlingtonvs.othercommunities).

Asillustratedinthetablebelow,surveyrespondentsindicatedthattheyspent–orplannedtospend–atotalof$11,178inDowntownBurlingtononthedaysthattheyweresurveyed.Ofthistotal,approximately31%,24%,and45%wasspentatRestaurant&FastFood,Grocery&Food,andOtherRetailestablishments,respectively.

Furthermore,itisevidentthatthemajorityofdowntownexpendituresweremadebyresidentsofBurlington;particularlythosewholivenearthedowntown(i.e.,intheBurlingtonSoutharea).Overall,BurlingtonSouthrespondentsaccountedformorethanhalf(60.5%)ofthetotalvalueofallexpenditures.ThisrelationshipwasparticularlystrongforGrocery&Foodexpenditures,whichistypicalofsuchlocal‐servingandneighbourhood‐orientedretailfacilities.


42

FIGURE3‐16:DISTRIBUTIONOFEXPENDITURESBYSTORECATEGORYANDRESPONDENTORIGIN


Itisalsointerestingtonotethatresidentsfromothercommunities–particularlythoseoriginatingfrombeyondneighbouringOakvilleandHamilton–spentmorethanresidentsoftheCityofBurlingtononaverage(i.e.,onthedayofthesurvey).

AssummarizedinFigure3‐17,forexample,respondentsfromtheCityofBurlingtonspentanaverageof$36perrespondent,whereasout‐of‐townvisitorsfromAllOtherLocations(i.e.,excludingOakvilleandHamilton)spentapproximately142%moreperrespondent(i.e.,$87onaverage).

$ % $ % $ % $ %

City of Burlington 2,713$ 78.4% 2,370$ 87.5% 3,251$ 64.9% 8,334$ 74.6%Burlington South (south of Queen Elizabeth Way and Highway 403) 2,405$ 69.5% 2,210$ 81.5% 2,151$ 42.9% 6,766$ 60.5%Burlington North (north of Queen Elizabeth Way and Highway 403) 308$ 8.9% 160$ 5.9% 1,100$ 22.0% 1,568$ 14.0%

Other Nearby Communities 328$ 9.5% 260$ 9.6% 517$ 10.3% 1,105$ 9.9%Town of Oakville 70$ 2.0% 20$ 0.7% 160$ 3.2% 250$ 2.2%City of Hamilton 258$ 7.5% 240$ 8.9% 357$ 7.1% 855$ 7.6%

All Other Locations 419$ 12.1% 80$ 3.0% 1,240$ 24.8% 1,739$ 15.6%

Grand Total 3,460$ 87.9% 2,710$ 97.0% 5,008$ 75.2% 11,178$ 84.4%

% of Total 3,460$ 31.0% 2,710$ 24.2% 5,008$ 44.8% 11,178$ 100.0%

TOTALLocation/Community

Restaurant & Fast Food Grocery & Food Other Retail


43

ThisdifferencewasparticularlyevidentforspendingintheOtherRetailcategory,wheretheaverageexpenditureforpatronsoriginatingfrombeyondBurlington,OakvilleandHamiltonwasmorethanfourtimesgreaterthanthatofBurlingtonresidents(i.e.,$62and$14perrespondent,respectively).

FIGURE3‐17:AVERAGEEXPENDITUREPERRESPONDENTBYCATEORYANDORIGINOFRESPONDENT


Location/Community

City of BurlingtonBurlington South (south of Queen Elizabeth Way and Highway 403)Burlington North (north of Queen Elizabeth Way and Highway 403)

Other Nearby CommunitiesTown of OakvilleCity of Hamilton

All Other Locations

Grand Total

$20.95

$11.69$11.97$9.94

$11.85

$10.22 $14.01 $35.92$11.00 $10.70 $33.66$5.16 $35.48 $50.58

$9.28 $17.15 $38.28

$7.74 $11.52 $27.58

$4.00 $62.00 $86.95

Restaurant & Fast Food Grocery & Food Other Retail TOTAL

$6.50 $12.93 $27.63$2.22 $17.78 $27.78

$8.20$7.78$8.32


44

4 HOWWELLISDOWNTOWNSERVINGTHECITY

4.1 ON‐STREETVISITORINTERCEPTSURVEY

Furthertotheinformationpresentedintheprevioussection,theon‐streetinterceptsurveysalsoincludedquestionsrelatingtothelevelofsatisfactionpatronsofDowntownBurlingtonexperiencedintermsoftheavailabilityofspecifictypesofretailandservicefacilitieslocatedinthedowntown.

Similarly,respondentswerealsoaskedtoprovideexamplesofthespecifictypesofimprovementsthattheywouldliketoseeinDowntownBurlington.

Thevarioustypesofretail,serviceandentertainmentfacilitiesthatrespondentswouldliketoseeaddedtoDowntownBurlingtonaresummarizedinFigure4‐1.

Asshown,approximately37%ofallrespondentsindicatedthattheywouldliketoseeanewmovietheatreaddedtothedowntown;particularlyonethatoffers“first‐run”films.Thisisparticularlyrelevant,giventhattheseresponseswereprovidedpriortotheannouncedclosingoftheEncoreTheatreinUpperCanadaPlace–theonlycinemainthedowntowncore.

Similarly,morethanonefifth(21%)ofrespondentsdesiredmorespecialtyfoodstoreoptions,suchasbakeriesanddelis,whilenearlyonequarter(23%)indicatedthattheywouldmakeuseofnewrestaurants,pubs,cafesandfastfoodestablishmentsiftheywerelocateddowntown.

Furthermore,approximately25%ofsurveyparticipantsindicatedthattherewere“other”typesofcommercialestablishmentsthattheywouldliketoseeaddedtothedowntownaswell.Themajorityoftheseresponsesrelatedtotheexpansionofentertainmentoptionsforyoungerresidentsandvisitors;particularlythoseinthe19‐34agegroup.Thefollowingprovidesasampleofsomeofthespecificentertainment‐basedfacilitiesdesired:

Nightclubs;

Amphitheatre/concertstageonthewaterfront;


45

Amusementpark;

Livemusicvenuesand/orclubs;and,

Poolhallsandbowlingalleys.


46

FIGURE4‐1:RETAIL,SERVICEANDENTERTAINMENTFACILITIESDESIRED


37.3%

20.5%

9.9%

9.6%

7.5%

6.2%

3.1%

2.4%

25.0%

0.0% 5.0% 10.0% 15.0% 20.0% 25.0% 30.0% 35.0% 40.0%

Movie Theatre

Specialty Food Stores (bakeries, delis, etc)

Clothing, Jewellery & Accessories stores

Full‐Service Restaurants & Pubs

Cafes

Fast Food Restaurants

Hair Salon/Beauty Parlour/Spa

Furniture, Home Furnishings & Electronics stores

Other


47

IntermsoftheadditionalimprovementsthattheCitycouldmaketothedowntown,responseswererelativelyevenlydistributedacrossawidevarietyoftopics.

AmongthemostfrequentresponsesincludedcommentsrelatingtofinishingconstructionofthepierprojectatthefootofBrantStreetandthewaterfront.Infact,morethanonequarterofrespondents(26%)offeredthissuggestionasoneofthetopimprovementstheCitycouldmaketothedowntown.

Othercommonlyproposedimprovementsincluded:

Better/morefrequenttransitoptions;

Moreaffordablehousingnearthewaterfront;

Establishingpriorityforpedestriansandcyclists;

Permanent/morefrequentstreetclosures;

Freeparkingtocompetewithlargershoppingcentres;

Morepublicartinstallations;

BeautificationandstreetscapeimprovementsalongBrantStreet;and,

Expansionofavailableparkspace.


48

4.2 DOWNTOWNPUBLICWORKSHOPVISIONING

DuringtheDowntownPublicWorkshoppublicconsultationevent–whichwasheldonNovember7,2012attheBurlingtonArtCentre–localresidents,businessowners,andothermembersofthepublicwereaskedtoparticipateinaninteractive“visioning”exercise.Thisexerciseinvolvedpollingparticipantsbasedonquestionsthatrelatedtoboththecurrentandfuturestatesofthedowntown.

Intotal,morethan130membersofthepublicparticipatedinthisexercise,ofwhichapproximately64%wereresidentsofthedowntown.Inaddition,approximately18%oftheseparticipantsindicatedthattheyweretheownerofabusinesslocatedinDowntownBurlington.

Thefollowingprovidesabriefsummaryoftheresultsofthisexerciseandgenerallyfocusesonthefollowingtopicsconsideredduringthepublicconsultationevent:

Participants’overallsatisfactionwiththecurrentstateofDowntownBurlington;

ThespecificfunctionsthatrequirethemostattentionbytheCity;

ThetopthingsthatparticipantswouldliketoseeaddedtoDowntownBurlington;and,

ThespecifictypesofretailandservicecommercialfacilitiesthatpeoplewouldliketoseeaddedtoDowntownBurlington.

AsindicatedinFigure4‐2,themajorityofpeoplewhoattendedthepublicconsultationeventagreedthatDowntownBurlingtonalready“hasalotgoingforit”.Infact,morethan87%ofrespondentseitheragreedorstronglyagreedwiththisstatement,whereaslessthanonepercentdisagreedorstronglydisagreed.Thebalanceoftheparticipants(11.5%)wereneutralintheiropiniononthecurrentstateofthedowntown.

TheseresultsstronglyconfirmthatBurlingtonalreadyhasaveryhealthyandattractivedowntown,whichisgenerallymeettheneedsoflocalresidents.


49

FIGURE4‐2:CONFIDENCEINDOWNTOWN


Strongly Agree31.9%

Agree55.8%

Neutral11.5%

Disagree0.9% Strongly Disagree

0.0%

"DOWNTOWN BURLINGTON CURRENTLY HAS A LOT GOING FOR IT"


50

Despitetheiroverallsatisfactionwiththearea,however,participantsalsoconfirmedthattherewereseveralaspectsofthedowntownthatrequireimproving.

Inparticular,manyrespondentswereoftheopinionthatthedowntownneedstoabetterjobofservingasaneighbourhoodshoppingdestination.Aconsensuswasnotreachedonthistopic,however,asvotesweredistributedrelativelyevenlyamongtheoptionsprovided.

FIGURE4‐3:FUNCTIONSMOSTNEEDINGATTENTIONBYTHECITY


18.8%

16.0%

13.7%

12.1%

12.1%

10.1%

9.5%

4.9%

2.8%

0.0% 5.0% 10.0% 15.0% 20.0%

Neighbourhood Shopping Destination

Place to Live

Entertainment Centre

Place to Play and Have Fun

Place to Work

Cultural Centre

Regional Shopping Destination

Tourist Centre

Civic Centre


51

ParticipantsattheeventalsovotedonthetopthingsthattheywouldliketoseeaddedtoDowntownBurlington.AssummarizedinFigure4‐4,thetopthreeselectionsrelatedtotheadditionofnewretail/servicecommercialandentertainmentfacilitiesintheCity’score.

Specifically,thetopthreecategoriesidentifiedbelowaccountedformorethanhalfoftheresponses;withentertainmentopportunities,retailstoresandrestaurants/cafesreceivingapproximately54%ofthevotesoverall(i.e.,21.6%,17.1%and15.2%,respectively).

FIGURE4‐4:TOPTHINGSBURLINGTONNEEDSMOREOF


21.6%

17.1%

15.2%

13.6%

10.9%

8.5%

6.7%

5.1%

1.3%

0.0% 5.0% 10.0% 15.0% 20.0% 25.0%

Entertainment Opportunities

Retail Stores

Restaurants & Cafes

Parks and Open Space

Places to Live

Office Space

Personal Services

Activities for Kids

Fast Food Establishments


52

4.2.1 ROUNDTABLEDISCUSSIONS(TABLETOPICS)

Inadditiontothevisioningportionofthemeetingwhichwasconductedwiththeentiregroupofsome130stakeholders,theparticipantswereredistributedintosmallerroundtablestofurtherdeveloptheideasandissuespresentedpreviously.Thefollowingprovidesahigh‐leveloverviewofthetypesofcommentsthatwerecollectedduringthesetabletopicdiscussions;particularlyastheyrelatetohowwellDowntownBurlingtoniscurrentlymeetingtheneedsandwantsoftheCity’sresidentsfromacommercialperspective.

Therewasanoverwhelmingnumberofcommentsfromthepublicindicatingthattheywouldliketoseemorespecialtyfoodstoresinthedowntown;includingbutchers,fishmarkets,bakeries,gourmetfoodshops,freshproduce/fruitstores;organic/healthfoodstoresandoptionsforvegans/vegetarians/gluten‐freeshoppers.

Similarly,participantsalsoindicatedthattherewasaneedforasecondsupermarket/grocerystoreinthedowntown,whichconfirmtheresultsofboththeon‐streetinterceptsurveysandvisioningexercise.

Afarmer’smarketwasalsofrequentlyidentifiedasahighlysought‐afteroptionforlocalresidentstopurchasefreshproduceandrelatedfooditems.

Othersuggestionsofthetypesofretail/servicefacilitiesthatweredesiredinthedowntownmainlyrelatedtoneighbourhood‐orientedretailestablishments,suchashardwarestoresandpharmacies/drugstores.

Similarly,otherfrequentlymentionedtopicsincluded:

Theredevelopment/revitalizationoftheVillageSquaresite;

Addingmoreentertainmentvenues(e.g.,livemusicvenues,etc.)

Expandingtransitoptions;

Increasingthesupplyofparking(e.g.,moremulti‐storeyparkingstructures);

Improvingcyclingandpedestriannetworks(i.e.,dedicatedlanes,safer,betterlighting,bicycleparkingoptions,connectionswithdowntownfromwaterfront);


53

Improvingway‐findingandsignage(e.g.,maps,directories,streetsigns)

Providingmoreaffordableshoppingoptions;

Establishingmoreaffordablehousingoptionsforalldemographics(e.g.,youngfamiliesandsingles);

Attractingmoreeducationalinstitutions(e.g.,university/collegecampusesorsatellitecampuses);and,

Addingmoregreenspaceandexpandingotherexistingpublicspaces.


54

5 FUTURECHALLENGESANDTRENDS

ThefollowingprovidesabriefsummaryofsomeofthespecifictrendsandchallengesthatDowntownBurlingtoncanexpecttofaceinthecomingyearsandthetypesoffactorsthatwilldrivefuturechangeinthearea.AmoredetailedsummaryofthefuturechallengesandtrendsfacedbytheretailsectoringeneralhasbeenprovidedintheBurlingtonCommercialMarketAnalysisReport,whichhasbeencompiledaspartofthisassignment.

5.1 AGINGRESIDENTIALPOPULATION

SimilarlytomostcommunitiesacrossOntario,theCityofBurlingtonwillneedtoplanforanagingresidentialpopulation;particularlyasthe“baby‐boomer”generationreachespost‐retirement(i.e.,65+).

ThiswillmeansignificantadjustmentstothehousingstockacrosstheentireCity,frommorecompactlowmaintenanceresidentialformats,toretirementhomesandassistedlivingfacilities.Downtown,withitspedestrianenvironment,accesstoservicesandproximitytothehospitalcanplayanimportantroleinhousingandservingtheCity’sagingpopulation.

Fromacommercialperspective,thisdemographicshiftwillrequirenewtypesofretail/servicefacilitiestoservethisexpandingseniorpopulation.Forexample,theCitycanexpectanincreaseindemandforpharmaciesanddrugstorespace,aswellasotherhealth‐carerelatedservicesinthedowntown.

Withtheagingpopulation,therewillalsobeandecreasedrelianceonsinglepersonprivateautomobiletripsandtheneedtoenhancetransitandpedestriantraveltoandwithinthedowntowncore.

5.2 CHANGINGSOCIALANDECONOMICSTRUCTURALPATTERNS

Thesocialcircumstancesofconsumersarealsoundergoingsignificantchange.Isthemovementofthebaby‐boomgenerationthroughthelifecycleleadingtoamucholderpopulationwithdifferentshoppingpatterns,buttraditionalfamilystructuresarealsochanging,withfewerchildren,alargerproportionoftwo‐parentfamiliesinwhichbothparentswork,moreloneparentsandmorepeoplelivingontheirown.Manyconsumersinthesegroups,particularlytwo‐parentworkingfamilies,andespeciallyloneparents,havesignificanttimemanagement


55

issues,whichhasledtodifferentshoppingpatternsthaninthepast.Forexample,therehasbeenatrendtowardsfewershoppingtrips,withlargervolumesconsumedpertrip.This“stocking‐up”behaviourhasledtotheriseoflargeformatfoodstores,warehousemembershipclubs,andtheinclusionofmajorfoodcomponentsinnon‐foodstores,suchasdepartmentstoresanddrugstores.Asdiscussedbelow,internetshoppingatsitesownedbybothtraditionalretailers,aswellas,newretailplayers,suchasAmazon,E‐Bay,Craig’sList,andKijiji,aretakingonaneverexpandingroleintermsofcateringtothetime‐starvedshopper.

Consumersarebecomingmoreculturallydiverseandmoreurban.AlthoughBurlingtonislessculturallydiversethanmuchoftheGTA,theoverallgrowthinthenew‐Canadianmarketwillbesignificantandwilllikelyspreadintonewareasinthefuture.ManypartsoftheGTA,suchasMarkham,Scarborough,Toronto,andBrampton,havealreadyexperiencedethnicallyinfluencedretaildevelopmentsthathavechallengedtraditionalplanningpolicies.

Ithasbeenseveraldecades,sinceCanada'shouseholdsweretypifiedbythe“dad,stay‐at‐homemomandkids”scenario.ThemodernCanadianFamilyissmaller,andamajorityincludenochildren.IncreasingnumbersofCanadiansareactuallylivingalone,andforseniorsinparticular,thishouseholdarrangementcanbeproblematicdependingontheiraccesstotransportation.Itisbecomingincreasinglyimportanttoensurethatresidentialareas,likelytoattractseniors,haveeasyaccesstofoodshopping,servicesandotherrequiredcommercialandinstitutionalresources.AsforthoseCanadianfamiliesthatdohavechildren,familyformationisonaverageoccurringlaterinlife,atatimeofgreaterfinancialstability,andfamilyresourcessupportasmallernumberofchildren.Asignificantnumberofchildren,however,liveinlone‐parenthomes,puttingadditionalpressuresonthetimestrappedconsumer.

Morethanthreequartersoffoodexpendituresgotowardspurchasesfromstores,whereconsumershavebenefitedfromasustained,long‐termdeclineinmostcommodityprices.Changinghouseholdtimeconstraintsoverthelasttwodecadeshavebroughtsignificantchangesinfoodconsumptionpatterns.Forexample,theaveragemealpreparationtimehasfallen,relianceonprocessedandstore‐preparedfoodhasincreased,andpurchasesoffastfoodshavegrown.Whiletherehasbeenamovementtowards,healthyalternativestoprocessedandfastfoods,theissueislesscentredonconsumereducationandmoreonthetime‐strappedlifestylesofthemodernCanadianconsumer.

Thechallengefacedbyplannersishowtoincreasepersonaltimeandcatertonewconsumerneedsbycreatingmoreefficienturbanenvironments.


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5.3 POPULATION&EMPLOYMENTGROWTH

Asdetailedinthesecondsectionofthispaper,inorderforBurlington’sUrbanGrowthCentretomeettheintensificationanddensitytargetssetoutintheProvince’sGrowthPlan,itwouldneedtoaccommodateanadditional9,400newresidentsandjobsbetween2006and2031.Dependingontheratioofjobstoresidents,theGrowthCentrewouldlikelyrepresentthesinglelargestconcentrationofnewpopulationgrowthintheCityoverthenext20years.InadditiontotheGrowthCentre,othercorridorsandnodeswithinthePrimaryTradeAreafortheDowntown(i.e.boundedbyKingRoad,theQEW,WalkersLineandtheLake),alsorepresentprimeintensificationareas.Asaresult,thepopulationwithindowntown’sPrimaryTradeAreawillaccommodatethemajorityofnewgrowthintheCityto2031.

Basedontheinventoryandpopulationinthecore,thecommercialspaceinthedowntownisadequatelyservingthelocalresidentialpopulation,althoughasnotedpreviously,somegapsdoexist.Theredoesnotappeartobeanoversupplyintheareaoflocalservinguses.Andinsomecategories,suchasrestaurantsandservices,thedowntownpopulationbenefitsfromactivitiessupportedbyamuchbroaderpopulation.

Futurepopulationgrowthwillultimatelyrequireanincreaseinlocalservingretailfacilities,suchasfoodstores,pharmacies/drugstores,andpersonalservices.

Toalargeextent,residentsandemployeesrequiredifferentretailandservices.Overalllocalresidentswillrequiremorespacelocally,particularlyinthecategoriesofsupermarkets,specialtyfood,pharmacies,personalservices,medical/dentalservices,financialservicesandsomeotherservices.Employeesandbusinesseshaveastrongneedfornearbyservices,suchas,restaurantsandfastfoodoutlets,financialservices,businesssupportservices,professionaloffice;aswellas,selectedretailoutlets,suchaspharmaciesandofficesupplystores.Theabilityofadowntowntodrawonamultiplenumberofmarkets(e.g.localresidents,businesses,tourists,students,etc.)allowsforabroadermerchandisemixthanwouldotherwisebethecase,tothebenefitofalldowntownstakeholders.

BasedontheanalysisconductedinTheCommercialMarketStudy,thegrowthindowntown’sPrimaryTradeAreato2031couldsupportsome190,000squarefeetofadditionalretailandservicesspaceinthedowntown.

Thesixfuturedevelopmentsitesinthecore(ParkingLotsAandB,2042Lakeshore,TudorSquare,392Pearl,779BrantStreet)currentlycomprisesome273,000squarefeetoflandarea(6.2acres/2.5ha).Inordertoaccommodatefuturecommercialspacerequirementson


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thesesites,itwouldbenecessarytoachieveagroundfloorcommercialcoverageofapproximately70%6.Thiswillbedifficulttoachievegiventheneedforparking,setbacks,landscaping,andnon‐commercialuses.

Forthisreason,itwillbeimportanttopromotethedevelopmentofgroundfloorcommercialspaceonthesesites.Therewilllikelybeaneedtoidentifyotheropportunitiestointegratenewgroundfloorcommercialspaceandtodiscourageconversionsfromfunctionalretailcommercialspaceinexistingbuildings.

Itwillbeparticularlyimportanttoplanforamixofunitsizes,includinglargerunitsforfoodstoresandtoensurethatparkingrequirementsaresufficientlyflexibletoencouragenewretaildevelopmentinthecore.

5.4 E‐RETAILINGANDNON‐STORERETAILING

WiththebirthoftheInternetin1993cameE‐commerceoron‐lineshopping.ForCanadianconsumers,thevalueofinternetshoppingcomprised$15billionin2009,comparedtoalmost$8billionin2005.AlthoughE‐commercecontinuestogrow,itstillrepresentsonlyasmallportionoftotalretailtrade($415millionin2009inCanada).Itisexpectedthatasyounger,Internet‐savvycustomersmatureandInternet‐usagebecomesmorewidespreadovertimeamongconsumersofallages,E‐commercewillbecomeincreasinglyrelevant.Furthermore,on‐linepowerhouses,suchasEBayandAmazon,areaggressivelygrowingtheoverallon‐linemarket.Becausethereformostshoppers,thein‐storeexperienceisstillanessentialpartoftheirshoppingtrip,themajorityofinternetshoppinghastendedtobeconcentratedinarelativelysmallnumberofretailcategories.AccordingtoaStatisticsCanadasurvey,themostcommontypesofonlineshoppingcontinuetobetravelservices;entertainmentproductssuchasconcerttickets;booksandmagazines;andclothing,jewelleryandaccessories.

StatisticsCanadaindicatesthattheInternethasbecomeasupplementtotraditionalretailshoppingmorethanasubstituteformanyCanadians.Mostmajor“brickandmortar”chains,aswellasmanyindependentretailers,alsonowprovideon‐lineshopping.

6Retailcommercialgroundfloorcoverageinasuburbansingleusesettingisapproximately25%.


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BasedonthesurveysconductedbyurbanMetricsinBurlington,some22%oftelephonesurveyrespondentsand43%ofon‐linesurveyrespondentsmadeinternetpurchasesoverthepastmonth.Themostpopularpurchaserswereretailitemsincludingbooks,movies,musicandothermerchandise,whereasticketsandothertravelrelatedservicesaccountedforthegreatestvalueofonlineexpenditures.

Recentbankruptciesandstoreclosures(Bordersbookstores;BlockbusterVideo;HMV;BestBuy)aretestimonytotheimpactofon‐linecompetitioninsomeofthesecategories.

InadditiontoInternetshopping,homeshoppingthroughcataloguescontinuestoexpand.Therearehundredsofcompanies,manyofwhichareUSAbased,whichprovidecataloguesfortelephoneoron‐lineshopping(e.g.LLBean,LandsEnd,Avon,Sears).CanadaPostispromotingBorderfreeTMforbarrier‐freeandhasslefreeshoppingbypartneringwithinternationalcompaniesinanefforttosimplifyshippingprocedures.Mostofthesecompanieshavecatalogues.

Althoughitstillrepresentsarelativelysmallshareofoverallspending,internetshoppingisgrowingandismakinganumberofretailstoresandserviceprovidersredundanttovaryingdegrees.Manyofthesehavebeencommonlyfoundindowntowns,including:

Bookstores;

Recordedmusicstores;

Electronicsstores;

Travelagencies;and

Computerandgamingsoftware.

Atthesametime,however,e‐retailinghasreducedtheimportanceoflocationforspecializedretailing.Thisprovidesanopportunitytoattractspecializedretailerswithe‐retailingcapabilitiestodowntowntotakeadvantageoflowerrentsthanwouldbefoundinshoppingcentresandanambiencethatmaysupporttheirproduct’simage.


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5.5 RETAILDEVELOPMENTTRENDS

Withurbanintensificationandthesaturationofmanypowercentremarkets,manyretailersaredeveloping“urban‐scale”formatstargetedatmoredenselypopulatedareas.Inparticular,manyofthemajorCanadianandAmericanretailchainsthattypicallylocateinlowdensitypowercentresarenowintroducingsmallerstoreformatsthatcouldpotentiallylocateinadowntownenvironment,suchasthatinBurlington(e.g.,BestBuy,FutureShop,Walmart,Target).

Ofparticularrelevancearetheurbanformatsofthemajorsupermarketchains,includingLoblaws,Metro,SobeysandLongos;allofwhichnowoperatestoresinmixeduseprojectswithundergroundparking.

Inaddition,theCanadianmarkethasalsorecentlyseentheintroductionofseveralnewAmericanandotherinternationalretailchains,suchasTarget,Marshall's,Victoria’sSecretandJCrew.Initiallythesechainswilllocateinpowercentresandshoppingcentres.Intheshortterm,thismayaddtotheregionalretailcompetitionfacedbytheDowntown.Inthelongerterm,withincreasedpopulationinthecore,thismayincreaseopportunitiestoattractnewtenants.

FIGURE5‐1:LONGOS‐MAPLELEAFSQUARE,TORONTOWATERFRONT


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5.6 CHALLENGES

Unlikeshoppingcentresandpowercentres,downtownsfaceuniquechallenges,whichmustberecognizedinfutureplanning,including:

Thecostandperceivedinconvenienceofparking;

Trafficcirculation;

Reducedaccessfordeliverytrucks;

Shorterandun‐co‐ordinatedstorehours;

Pedestrianmovementduringinclementweather;

Absenteelandlordsandvaryingresourcestomaintainprivatebuildings;and,

Aboveaveragecoststorepair,maintainandupgradeolderbuildings.

Itmustberememberedthattheseissuescanbeaddressedtovaryingdegreesandforsuccessfuldowntowns,theyareabletothriveinspiteofthesechallenges.

DowntownBurlingtonalsohasachallengeinthatmostofitsretailingissituatedonasinglelinearspineonBrantStreetextendingsometwokilometresfromLakeshoreRoadtoFairviewStreet.Thislackofconcentrationwillimpedecross‐shopping,pedestrianmovementandacriticalmassattraction.


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6 SUMMARYANDCONCLUSIONS

Thefollowingprovidesasummaryofourprofessionalrecommendationsandconclusions,basedonthevariousresearchandinformationpresentedinthispaper.

6.1 CURRENTSTATEOFTHEDOWNTOWN

DowntownBurlingtoncomparesveryfavourablytoothersuccessfullyfunctioningdowntownsintheGTA,suchasOakville,Waterloo,andWhitby.AllofthefollowingcharacteristicspointtothevibrancyofDowntownBurlingtonasitcurrentlyexiststoday:

thescaleofthecommercialcore;

lowvacancyratesinprimeareas;

recentresidentialdevelopmentactivityandinterest;

publicsectorinvestmentinthedowntownandwaterfront;and,

thecontinuedfocusoncivicevents.

Equallyasimportant,istheconfidencethatBurlingtonresidentshaveinthecore,whichhasbeenexhibitedthroughtheDowntownworkshop,andotherdirectconsumersurveyinformationgatheredaspartofthisstudy.Thiswillbeparticularlyimportantgoingforward,asDowntownBurlingtonexpandsitsroleasanUrbanGrowthCentreandMobilityHub.

6.2 FUNCTIONSOFTHEDOWNTOWN

DowntownBurlingtonisamulti‐functionalcore,whichhasstrengthinanumberofareas:

NeighbourhoodRetailCentre;


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SpecialtyRetailDestination;

PlacetoLive;

PlacetoWork;

CulturalandRecreationCentre;

GovernmentCentre;and,

ServiceCentre.

WhiletheDowntown,appropriatelyservestheCitythroughthesefunctionstoday,inthefuturesomeoftheseroleswillhavetoexpandtomeettherequirementsoftheGrowthPlan.Itwillhavetoadoptnewresidents,largelythroughintensification.Thiswillultimatelyincreasetheneedforadditionalneighbourhoodservingcommercialopportunities,suchasfoodstores,services,restaurants,andconvenienceretailoutlets.Similarly,theincreaseinemploymentcalledforbytheGrowthPlan,willalsorequireadditionalcommercialspacetosupporttheenlargedworkforceandbusinessbase.

Basedontheextensiveconsumerresearchconductedaspartofthisstudy,bothdowntownstakeholders(i.e.downtownresidents,workersandbusinessowners)andthebroaderCitypopulationsupportthesefunctionsfordowntownandwouldliketoseepoliciesthatallowthemtothrive.

Functions,whicharelessreadilyacknowledgedbydowntownstakeholdersandthebroaderBurlingtonpopulation,include:

Regionalservingretail,includinglargeformatretailers,departmentstores,andthetypesofusesthatwouldbemorelikelytolocateinpowercentresandthelargeshoppingcentres;

Centreformajorofficebuildings;and,

EducationCentre.

Intermsofregionalretail,whiletherewassupporttoexpandthisfunction,itwaslessprevalentthantheotherexistingfunctions.ThestakeholderswerestrongerintheirdesiretoattractmoreofficedevelopmentandeducationalusestodowntownBurlington.


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WewouldnotethatthechallengefacedbytheCitywillbehowtomakedowntownBurlingtonattractivetomajorofficeandeducationalusesandhowtoaccommodatethemwithintheexistingurbanfabric.

6.3 FUTURECHALLENGESANDTRENDS

Thefuturedirectionofdowntownwillbeheavilyinfluencedbyanumberofprevailingtrends:

ItsmandatedgrowthasaprovincialUrbanGrowthCentre;and,

TheagingOntariopopulation

Changingsocialandeconomicstructuralpatterns.

Asamandatedgrowthcentre,theCitywillberequiredtoplanforanexpansionofnearly70%morepersonsandjobsinthedowntownthancurrentlyexiststoday.Additionalpopulationwillrequiresupportingservices,suchasnewretailstores,personalservices,schools,andsimilaractivities.Whiletherearesomekeydevelopmentandintensificationsitesinthecore,itisunlikelythattherequiredpopulationandemploymentcanbeaccommodatedwithinsinglefunctionbuildings.Futurepoliciesmustencouragemixedusedevelopmentandensurethatitoccursinamannerthatcanaccommodatetherequiredsupportingcommercialandinstitutionalservices.

TheagingpopulationwillalsoplacechallengesonthepublicandprivatesectorinfrastructureandthedowntownisuniquelysuitedtobecomeafocalpointfortheCity’sseniors;owingtoitsconcentrationofresidentialapartments,accesstoretailandservices,thepedestrianfriendlyenvironment,proximitytothehospitalandavailabilityoftransit.

Changingfamilystructuralpatterns,andtheresultingtimecrunch,havechangedthewayCanadiansshop–givingrisetolargeformatfoodretailingandanincreaseintheconsumptionoffastfoodsandprocessedfoods.Seniorslivingalone,maybeparticularlychallengedbyrecentretaildevelopmentpatterns,whichfavourlargecentralizedretaildestinationsoverneighbourhoodshoppingnodes.Thechallengeforplannerswillbetocreateamoreefficienturbanstructure.


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Intermsoftheretailsector,whilegrowthinlargeformatretailingisslowingandsomemajorchainsaredevelopingmoreurbanfriendlymodules,theentryofUSandforeignretailersandtheinvestmentsbeingmadeintorevitalizingoldersuburbancentres,willlikelymakeitdifficultfordowntowntocompeteasaregionalshoppingdestinationwithintheCity.

Asindicatedbythesurveys,onlyasmallportionofvisitorscametothedowntowntospecificallyshop,butshoppedbecausetheywerethereforsomeotherpurpose(e.g.downtownresident,downtownemployee,visitingthewaterfront,attendingaperformance,etc.).Inouropinion,ensuringthatthissupportingfunctioncancontinuetothriveshouldbetheprimarygoalofaretailstrategyforthecore.Morespecialtyandregionalservingretailcomponentswillnaturallyevolveasthedowntowngrows.


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7 PRELIMINARYPOLICYRECOMMENDATIONS

Basedontheinformationpresentedintheprevioussectionsofthispaper,aswellasthevariousotherresearchundertakenbyourprojectteamtodate,thefollowingprovidesanumberofpreliminarypolicyrecommendations,whichrelatespecificallytothedowntown.AdditionaldetailwithregardstotheserecommendationsiscontainedinthePhase1:CommercialPolicyandDesignReviewBackgroundReport.

Inparticular,therecommendationspresentedonthefollowingpagesrelatetothefollowing:

TheDowntownBoundaryanditsStructure;

EstablishingMinimumDensityTargets;

EstablishingSpecificMixed‐UseDensityTargets;

EstablishingaNewRetailStructure;and,

ProvidingIncentivesforIntensificationandNon‐ResidentialDevelopment.

7.1 DOWNTOWNBOUNDARIES&STRUCTURE

Currently,theCity’scoreisdelineatedbytwoboundaries:theProvincialUrbanGrowthCentre(UGC)boundary,andtheCity’sDowntownMixedUseCentreboundary(Figure7‐1).TheProvinciallydesignatedUGCboundaryisanirregularboundarythatextendsacrosspartsoftheDowntownproper,mainlyalongtheMapleAvenue,LakeshoreRoad,andBrantStreetcorridors,terminatinginthenorthwestatProspectStreet.TheCity’sDowntownMixedUseCentreboundarycoversabroaderareaassociatedwiththeDowntown,boundedbyBaldwinStreetinthenorthwest,extendingouttoClarkeAvenue/MapleStreet/theQEWinthewestandsouthwest,androughlyTorrenceStreetintheeast.

InsupportoftheongoingworkregardingtheCoreCommitmentfortheDowntown,theCityhasidentifiedtheneedtorationalizetheDowntownboundaries.Aspartofthisexercise,itisimportanttoconsider,whatisthepurposeofestablishingaboundary?Fromacommunity


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planningperspective,aboundaryisusedtoidentifyanareathatfunctionsasasystemand/orhascommonbuiltformcharacteristicsandtransportationinfrastructure,andtothendevelopaframeworkformanagingchange(i.e.growth)overtimeinawaythatpreservestheuniquecharacteristicsofthearea,whileenhancingthephysicalandsocialfabricoftheestablishedcommunity.Fromacommercialplanningperspective,boundariesareusedtoidentifyhubsofcontiguousretailandothercommercialactivitythatfunctionasasystemand/orhavecommoncharacteristicsintheirbuiltformand/ortheytypesofproductsandservicesthatareoffered.Thecommercialplanningboundarymayalsoreflectthedestinations(homeaddresses)ofcustomers.

Usingthesecriteria,strategicconsiderationshouldbegivento generallymaintainingtheCity’sexistingboundaryfortheDowntown,withsomeminormodifications(e.g.removingthesouthernmostportionofthecurrentdesignationalongtheBurlingtonSkywaywherethelandusesandblockconfigurationsareinconsistentwiththeremainderofthecore).TooperationalizetheUGCdesignation,strategicconsiderationshouldalsobegiventoidentifyinganurbancorridornorthwestoftheDowntownalongBrantStreet,andtorevisitingtheprecinctdesignationswithintheDowntowntoensuredensitydistributionsareinformedbytheUGCboundary(i.e.theareawherethehighestdensitiesshouldbedirected).

FIGURE7‐1:EXISTINGBOUNDARIESFORDOWNTOWNBURLINGTON FIGURE7‐2:PROPOSEDDOWNTOWN BOUNDARY


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CoreCommitmenthasdefinedeightprecinctswithinthedowntowncore.Thisworkshouldberefinedinpolicybyrecognizing:

CoreandMainStreetRetailAreas,whichwouldgenerallybeconcentratedaroundthehistoricmainstreetshoppingdistrict(i.e.,BrantStreetandotheradjacentstreets);reflectingthecommercialhierarchyindowntown;

OpportunityAreas,whereopportunitiesforfuturedevelopmenthavebeenidentifiedorareanticipated;

Stable/EstablishedResidentialAreas,includingthoselocatedtotheimmediateeastandwestofthecommercialcoreofthedowntown;

TransitionAreas,includingthestretchofBrantStreetdirectlynorthofthecorecommercialareaofdowntown,aswellaseastandwestofBrantStreetonLakeshoreRoad;and,

Tourist&CulturalAreas,whichwouldbefocusedalongthewaterfrontandnearotherexistingorpotentialnewculturalamenitiesinthedowntownwithrestrictionsonprivatedevelopment.

7.2 MINIMUMDENSITYTARGETS

Currently,theOfficialPlanincorporatestheProvinciallymandatedminimumdensitytargetof200peopleandjobsperhectarefortheDowntownasawhole.StrategicconsiderationshouldbegiventodevelopingminimumdensitytargetsfordifferentareasoftheDowntowntofacilitatedensitydistributionsthatreflecttheexistingandplannedbuiltformandblockconfigurations,inlinewiththeUGCandmobilityhubdesignations.TheseminimumdensitytargetscouldbeintegratedwithexistingheightanddensitypoliciesforthevariousDowntownprecinctsandwouldhelptocomprehensivelyplanforandmonitortheintensificationofBurlington’sDowntown.

7.3 SPECIFICMIXEDUSETARGETS

Tooptimizetheuseoftransitandstrengthenthearea’seconomicbase,oneoftheobjectivesfortheDowntownistoattractmoreofficeandinstitutionallanduses.Beyondeconomicdevelopmentactivities,thereareanumberofpolicystrategiestheCitycouldconsidertoencouragethistypeofdevelopment,includingestablishingmixedusetargets(i.e.%requirements)forthedifferentprecincts,andestablishingajobs‐to‐residentstargetratio.


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7.4 ANEWRETAILSTRUCTURE

WithregardtocommercialusesintheDowntown,strategicconsiderationshouldbegiventopermittingretailandservice‐‐‐relatedusesmorebroadlythroughoutallareasoftheDowntown.Currently,commercialusesarenotpermittedthroughoutmuchofthearea,andthisisinconsistentwiththecharacteristicsofacompleteurbancommunity.TobetterintegratecommercialusesthroughoutDowntownneighbourhoods,retailpermissions/requirementscouldbede‐‐‐linkedfromtheprecinctdesignationsandre‐‐‐introducedthroughnew“retailprioritystreets”designations.ProposedretailstreetcategoriesareoutlinedinTable7‐1.

FIGURE7‐1:PROPOSEDRETAILSTREETCATEGORIES


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7.5 PROVIDEINCENTIVESFORINTENSIFICATIONANDNON‐RESIDENTIALDEVELOPMENT

InadditiontoestablishingmixedusetargetsfordifferentprecinctsintheDowntown,theCityshouldconsideridentifyingaPrimaryOffice/InstitutionalCoreArea,andprovidingincentivesfornewofficedevelopment,suchasreducedautomobileparkingstandardsandreducedparklanddedicationrequirements.TheCitycouldalsoconsideralinkagerequirement,wherebyapprovalforresidentialdevelopmentistiedtotheinclusionofnon‐‐‐residentialdevelopmentwithinthedevelopmentsite.

interim commercial strategy discussion … commercial strategy discussion paper downtown burlington...

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