Re-establishing Value
A Plan for the Old East Village
Planners Action Team
Ontario Professional Planners Institute
April, 2003
Contents
Who Are the Planners Action Team?
1.0
INTRODUCTION
1.1
1.2
1.3
1.4
1.5
1.6
1.7
Structure of This Report
The Study Area
Who Are PACT?
PACT Accomplishments to Date
Old East Village BIA – Progress and Accomplishments
How This Plan Will be Used
PACT Recommendations
2.0
MAJOR FINDINGS
3.0
POSITIVE CHANGES TAKING PLACE IN THE OLD EAST VILLAGE
4.0
THE APPROACH
5.0
THE VISION
5.1
5.2
5.3
Community Consultation – Results From Focus Group Meetings
Presentation of Community Results – Performance on October 18th, 2002
Wortley Village – An Instructive Example to Form a New Vision for East
London
6.0
THE STRATEGY
7.0
THE STAKEHOLDERS
8.0
THE PLAN
8.1
8.2
8.3
8.4
8.5
9.0
Improve the Desirability of the Surrounding Neighbourhood
Strengthen the Connection Between the Residential Community and the
Commerical Corridor
Crete a Village Core and Concentrate Revitalization Efforts There
Support the Transition of the Remainder of the Corridor
Develp Entertainment, Recreation and Arts Opportunities
IMPLEMENTATION AND PRIORITIES
APPENDIX 1 – DISTRICTS AND PHOTOGRAPHIC COMPOSITES OF STREETSCAPES
APPENDIX 2 – PRELIMINARY ANALYSIS PREPRED BY PACT IN SEPTEMBER, 2002
APPENDIX 3 – (SEPARATE COVER) COMMUNITY FOCUS GROUP SUMMARY P
PEPARED BY BIA IN MAY, 2002
APPENDIX 4 – (SEPARATE COVER) GIS ANALYTICAL MAP SET PREPARED BY PACT
Re-establishing Value – A Plan for the Old East Village
Who Are the Planners Action Team?
The Planners Action Team (PACT) is a group of professional planners who have banded
together to volunteer their knowledge, training and expertise to prepare a plan for
revitalization of the Old East Village commercial corridor. The team was spawned from
the Southwest District of the Ontario Professional Planners Institute in 2001, but has
grown through this project to include members from outside of the District.
The PACT was established with the intent of helping a community in need that would
otherwise not have the resources to hire planning services. It was seen as a way of
using the wide diversity of talents offered by planning professionals in Ontario to help a
community in a real and tangible way.
It is hoped that this first PACT project will leave a legacy for the Old East Village in the
form of a planned framework for revitalization. While the challenges facing the Village
are both numerous and substantial, the PACT whole-heartedly believe that the spirit,
energy and goodwill of the stakeholders in this community will lead the commercial
corridor to vitality once again. Together with a focused and well thought out plan for
revitalization, this community can – and will – succeed.
The PACT includes the following diversity and blend of professionals:
o
o
o
o
o
o
Public and private sector planners
Sole practitioners and principles within large and mid-sized planning firms
Managers, senior planners, and young planners
Planning professors and planning students
Experts in land use planning and specialists in urban design
Experts in social issues and specialists in economics, commercial revitalization
and urban development
The PACT has reached out beyond the formal planning community to embrace other
practitioners that have helped to shape this plan, including:
o
o
o
o
o
A police officer and crime prevention (CPTED) specialist
A policy analyst
A real estate agent prominent in the Old East Village Area
A marketing analyst
Community workers
Re-establishing Value – A Plan for the Old East Village
The following people made up the Planners Action Team for the Old East Village
revitalization project:
Planners Action Team (PACT) Members
Chair, Michael Hannay MCIP, RPP – Principle, Urban Design
Coordinator, John Fleming MCIP, RPP – Manger, Land Use Planning Policy, City of London
John Van Nostrand, MCIP, RPP – Principle, Planning Alliance
David Hall – General Manager, Covent Garden Market
Sonny Tomich, MCIP, RPP – Senior Urban Designer, City of Hamilton
Jeff Leunissen, MCIP, RPP – Senior Planner, City of London
Mike Crechiolo, MCIP, RPP – Planner and Urban Designer, City of Guelph
Richard Zelinka, MCIP, RPP – Principle, Zelinka Priamo
Cathy Saunders, MCIP, RPP – Manager of Planning, Township of Middlesex Centre
Maureen Jones, MCIP, RPP – Senior Planner, Stantec Consulting
Radu Ciobanu – Urban Designer, MIG Consulting Engineers
Leona Cunningham – Policy Analyst, City of London
Rick Choja – London Police Force
Kate Wilson – Marketing Specialist
Ron Burnett, MCIP, RPP – Senior Planner, MHBC Planning Limited
Ian Seddon, MCIP, RPP – Principle, Ian Seddon Planning Services
Dave Casemore – Fanshawe College Planning Student
Paul Hicks – University of Waterloo Planning Student
Project Participants
Sarah Merritt – Old East Village BIA
Mike Driscoll – Old East Village BIA
Phil Singeris – Old East Village BIA
Shelly Happy – London Intercommunity Health Centre
Libby Joplin –Margaret’s Haven
Wil Pol, MCIP, RPP – Cumming Cockburn Ltd
Gabor Korb – City of London.
Project Assistance
Dr. Virginia Sauve – Portals: Educational Consulting Services, Inc.
Todd Hutchison and Keith Gamble – Old East Village BIA
Joe Pinheiro - Pinhero Realty
Mark Boulger – City of London
Gregg Barrett – City of London
Rob Panzer, MCIP, RPP – City of London
Nancy Pasato – City of London
Mark Ridley – City of London
Shane Maguire – City of London
Jim Honsberger – City of London
June Anne Reid – City of London
Rabi Bhandari – City of London
Anne Fleming – Teacher
A big thank you goes out to the Ontario Professional Planners Institute, Southwest
District Executive and Membership, and the OPPI Council for funding the PACT
project. Thanks also go out for contributions made by the Old East Village BIA and inkind contributions provided by the City of London, the Melody Restaurant (great coffee
Re-establishing Value – A Plan for the Old East Village
and food), The Vietnam Restaurant (great dinner), Aboutown Transportation Limited and
the Marienbad Restaurant (wonderful lunch). Thanks to John Fleming for all report
writing and assembly.
A huge thank you to Shelly Happy and the London Intercommunity Health Centre for
video taping the PACT project and for their ongoing assistance and support.
Our appreciation also goes out to the various groups who funded or participated in Old
East Village BIA processes that provided input or background to the PACT project,
including: (i) Human Resources Development Canada (HRDC) – funding for community
focus groups; (ii) The Western Fair Community Enhancement Fund – funding of Focus
Group presentations at Aeolian Hall; (iii) London Community Players & (iv) HRDC –
funding for video production (acknowledging the extra hours and work of Shelly Happy
from the London Intercommunity Health Centre).
Re-establishing Value – A Plan for the Old East Village
1.0 INTRODUCTION
This revitalization plan for the Old East Village is different from those that have gone before it.
Some may be skeptical of this statement – they might say that this plan, like previous others,
will not yield results. There are, however, major differences that give this plan a far greater
opportunity to have real and positive effect.
Most significant among these differences is that this time a clear and identifiable “champion” is
in place to implement this plan – an Executive Director and dedicated staff at the Old East
Village BIA. Up until now, the BIA has not hired full time staff. There has been no one in place
to activate recommendations, work with other parties to ensure that commitments are
maintained, and “wake up each morning thinking, eating and breathing the mantra of Old East
Village revitalization”. This time such a champion exists.
Also different is that this plan has been developed to address the underlying problems that are
facing the corridor – not just the symptoms of those problems. This plan does not focus on
physical improvements – it identifies and addresses the real issues that are affecting the Old
East Village corridor.
This plan is strategic. It develops a clear vision and a strategy that is aimed at achieving this
vision. Only then does it provide a means to take action towards this strategy. It is a
comprehensive plan which advocates incremental, achievable steps to become reality. This
plan “thinks big”, but advocates “steady, deliberate steps” toward revitalization.
There is, however, a key ingredient to success that is missing from this plan that can only be
provided by the key stakeholders of this community – commitment. It requires commitment from
the residential community and commercial business and property owners. It requires
commitment from City Council and it requires commitment from the BIA. It requires commitment
from the Western Fair – a key stakeholder in the success of the corridor. This commitment must
be real – not just rhetoric. It will require budgeted funding, long term programming, a shift in
business practices and a cultural change in the way the Old East Village is addressed by all
stakeholders. This plan needs such commitment to succeed.
1.1 Structure of This Report
This report relies upon the documentation that exists in its appendices for a significant amount
of background information relating to a variety of discussion points. This information has been
compiled, analyzed and developed throughout the Old East Village planning process to date.
These appendices should be reviewed to understand the basis of this plan more fully. Rather
than duplicate the text that has already been prepared in these appendices, this report will
summarize these discussion points and focus on the information that is most critical to the endusers in advancing revitalization of the Old East Village commercial corridor.
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Re-establishing Value – A Plan for the Old East Village – Page 1
1.2 The Study Area
There are many different boundaries that could be drawn to identify the Old East Village
commercial corridor.
No single boundary
would
satisfy
everyone’s
perspective.
Furthermore, it is
critical to understand
that the commercial
corridor cannot be
considered in the
absence
of
the
residential community
that surrounds it. The
adjacent map shows
the
study
area
boundary used by the
Planners
Action
Team (PACT) – those
buildings coloured in and the surrounding
context of the corridor. Appendix 4 provides a variety of maps which show the surrounding area
from many different perspectives (including land use).
1.3 Who are PACT?
PACT is the acronym used for the Planners’ Action Team. This team consists of members of
the Ontario Professional Planners’ Institute who have banded together to volunteer their
professional experience and advice to help a community in need. These volunteers consist of
a diverse range of professionals, including municipal planners, private sector planning
consultants, development analysts and urban design specialists. The Ontario Professional
Planners Institute is the recognized voice of the province’s planning profession.
As the project has evolved, the PACT has brought other key professionals from outside of OPPI
into the process. These professionals have brought specific areas of expertise to the project
and have made this plan stronger (eg. police officer, marketing expert, real estate agent,
community worker).
1.4 PACT Accomplishments to Date
The PACT has been working on the Old East Village commercial corridor project since early
2001. It was at this time that the PACT chose this project from a number of potential projects
that the team was considering. The corridor project was chosen not just despite its complexity,
but because of the diverse range of problems that the project requires to be considered. This
project was seen as an excellent opportunity to apply and showcase Planners’ multiple skill set.
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Re-establishing Value – A Plan for the Old East Village – Page 2
Since selecting the project the PACT has:
•
Held interviews with key stakeholders in the community;
•
Sat in on various focus group meetings, held by the BIA, with people from various
perspectives in the community and on the corridor.
•
Prepared a detailed physical survey of the commercial streetscape;
•
Prepared a photographic inventory (in booklette form) of the corridor;
•
Developed a detailed GIS project based on the streetscape survey and other sources of
information;
•
Prepared a 50 page analytical map set which illustrates various data;
•
Prepared a 24 page preliminary analysis of the commercial corridor – considering
Census data on the surrounding neighbourhood, ownership patterns, the regulatory
context, existing uses, the economic context, the viability of the commercial streetscape,
and some preliminary findings;
•
Held a 2 day Charette of PACT members, which included:
o
o
o
o
o
a bus tour of the surrounding community
a walking tour of the corridor and various streets in the surrounding neighbourhood
a public meeting with approximately 100 community members
issue identification and problem solving exercises
design development
1.5 Old East Village BIA – Progress and Accomplishments
Perhaps one of the greatest
contributions that PACT will make to
the Old East Village community has
already been provided.
In large
part, because PACT chose to take
on this project, the Old East Village
BIA was able to secure HRDC
funding to hire full time staff devoted
to
the
revitalization
of
the
commercial corridor. This project
represents a true partnership
between the BIA, HRDC and the
PACT – a partnership that has
allowed this plan to be developed.
Since its inception, the BIA has been
very active. While the following is
not intended to be an exhaustive list
of BIA activities, it gives a sense of
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Re-establishing Value – A Plan for the Old East Village – Page 3
some major accomplishments that the BIA has realized since staff were hired:
• Held a series of community focus group meetings – engaging the community in the
revitalization process and identifying their vision, hopes and aspirations for the corridor. The
report which was prepared to summarize the results of this process can be found in
Appendix 3 of this document.
• Developed an excellent web site (http://www.oldeastvillage.com/) which gives detailed
information on the study process, goals, accomplishments and future steps. It also provides
a support mechanism for prospective investors in the City and provides an information
vehicle for the larger community.
• Began the process of preparing a community economic development plan.
• Successfully applied to the City of London Affordable Housing Initiative for $150,000 to begin
a convert to rent housing initiative on the corridor. This pilot project will be a partnership
program between the BIA and the City to create a model for a broader convert to rent
program for the city.
• Worked with City staff on a variety of issues, thus establishing important communication ties
and cooperative relationships with the municipality.
• Engaged in ongoing dialogue and communication with the residential and commercial
community in the Old East Village.
1.6 How This Plan Will Be Used
This plan, prepared by the PACT, will form one part of the Old East Village BIA’s “Commercial
Corridor Transition and Revitalization Study”. The overall goal of the BIA’s larger study is to:
“estimate the viability of the Old East London Village commercial corridor of Dundas
Street between Adelaide and Egerton Street and to use the study results as the
foundation for creating and implementing an integrated commercial, economic and social
development plan for the adaptive re-use of the corridor”.
In summary, the goals of the BIA’s larger study are to:
“1) Involve local residents in the development of the plan
2) Provide immediate and ongoing support to local businesses and organizations
3) Estimate economic viability of the area
4) Create an economic, social and commercial development plan”
The plan, prepared by the PACT, will be given to the BIA. It is at their discretion to use it and
integrate it into their own study and larger plans as they see fit.
1.7 PACT Recommendations
This report was prepared by the PACT. The opinions expressed in this report cannot be
ascribed to any one person on the PACT team. There are a number of participants on the
Planners Action Team who are employed by the City of London. This plan should not,
however, be considered to be endorsed by City Council or City of London Administration. All
opinions and recommendations stated in this report are the result of a collaborative planning
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Re-establishing Value – A Plan for the Old East Village – Page 4
process and have been based on the concurrence of a majority of PACT members – not
necessarily all PACT members.
2.0 MAJOR FINDINGS
The PACT prepared a detailed review of the study area prior to the 2 day Charette that it held
as the foundation for this plan. The results of this review can be found in Appendix 2. This
Appendix gives information and analysis of the study area and its surrounding neighbourhood
on the following items:
• Population
• Housing
• Economic considerations
• Commercial landscape
• Traffic
• Lot configuration
• Ownership
• Official Plan designations
• Zoning
• Heritage properties
• Existing land uses
• Employment
• Taxes
• Business Improvement Area and existing incentives
• Private sector investment in the corridor
• Streetscape importance
• Building condition
• Streetscape viability
The following Section focuses on the PACT’s findings that were most important to the
formulation of this revitalization plan. Some of these findings are presented as “strong”
statements with which some will undoubtedly disagree. However, it is important to understand
that these findings come from professional planners from within and outside of the City and
provide an honest assessment from a trained eye’s perspective. These statements are not
“softened”, but are intentionally expressed honestly in the hope that they will open the eyes of
key stakeholders in the community.
Finding #1:
The
residential
neighbourhood
surrounding the commercial corridor has
lost value and identity within the broader
London community.
Evidence:
• Public investment in the community appears to be low
o Carson library is small, not well maintained,
and is generally inadequate
o There is no active park space available
within the community west of Quebec Street
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Re-establishing Value – A Plan for the Old East Village – Page 5
Queens Park, at the Western Fairgrounds, is not useable
Lorne Avenue public school has not been modernized – the entire school yard is
covered with asphalt
• City-wide social services are concentrated (some would say ”dumped”) in this area
• Real estate agents regularly steer potential residential purchasers away from this area
• Real estate values are low in the area (a quantitative market expression of how people value
this area)
o Average sales price within a 1 km radius of Rectory and Dundas = $102,000
o Average sales price within a 2 km radius of Rectory and Dundas = $109,000
o Average sales price within a 3 km radius of Rectory and Dundas = $125,000
o Average sales price within the City of London = $156,000
o
o
• Maintenance of public facilities within the community is low
o Signage at Queens park is broken (example of
larger problem)
o Fencing from Western Fair event has been left
up long after the Fair is over (various poles,
fence in front of heritage train have not been
removed)
o Business owners report lengthy, drawn-out road
repairs
o Property standards are not well enforced
• There are concentrations of deteriorating residential buildings – an indication that property
owners do not see value in maintaining their properties
Finding #2:
Similar to the residential neighbourhood, the commercial corridor has lost
its value to both investors and most former and potential customers.
Evidence:
• Real estate values are low
• Building permit records indicate that
investment in the building stock is low
• Buildings are deteriorating (nearing blight
in some portions of the corridor)
• Long standing businesses have left the
corridor and have not been replaced
• Vacancy rates are high
• Many new businesses opening on the
corridor are for marginal uses (eg. Pawn
shops, cheque cash stores, etc.)
• Some ground floor commercial spaces are
being used for residential purposes
• Pedestrian shopping activity on the
corridor is low – even at peak shopping hours
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Re-establishing Value – A Plan for the Old East Village – Page 6
Finding #3:
The residential community is no longer linked to the commercial corridor –
they don’t use the corridor.
Evidence:
• Discussions with residents confirm the above finding
• There are very few uses on the corridor that relate to the every-day commercial needs of a
resident population
Finding #4:
Following from Finding
#3, above, the uses that
do exist on the corridor
have very little to do with
the
surrounding
residential
community
and some of these “nonconnected” uses are
destructive or counterproductive
to
revitalization.
Evidence:
• There is a concentration of uses such
as:
o City-wide social services –
many targeted for the City’s
most vulnerable
o Pawn shops
o Quick cheque cashing
services
o Reported prostitution and
drug dealing
Finding #5:
The commercial corridor is a product of a previous era when retail
shopping patterns were much different than they are today. This fact,
combined with the decline in the surrounding community’s population,
means that the corridor is much larger than that which can be reasonably
supported by the market.
Evidence:
• The population of the surrounding community is 2/3 of what it was in 1966
• Mapping of the retail landscape shows that malls, power centres and large amounts of strip
commercial development have proliferated in the City since the late 1960’s.
• The following is a comparison with Wortley Village (a successful historic commercial area in
London) which shows that East London’s corridor is much larger and much longer, but has a
smaller surrounding population base:
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Re-establishing Value – A Plan for the Old East Village – Page 7
Comparative Variable
Population 1km radius
Population 500m radius
Length of commercial corridor
Ground floor area (m2) of commercial corridor)
Portions of Dundas Corridor For Comparison
Length of ½ of corridor - Adelaide to Rectory
Length of 1/3 of corridor - Adelaide to English
Ground floor area of ½ of corridor - Adelaide to Rectory
Ground floor area of 1/3 of corridor - Adelaide to English
Finding #6:
Wortley
10,600 people
3,100 people
420 m
10,945m2
Old East Village
8,400 people
2,500 people
1 200 m
42,800 m2
600 m
435 m
30,000m2
22,800 m2
The commercial corridor is not homogeneous. It varies considerably with
respect to the quality of the commercial streetscape and its possibilities as
a viable pedestrian-oriented commercial corridor.
Evidence:
The detailed map set which is attached as Appendix 4 of this document shows that the
streetscape is very different from one block to another. In general, the streetscape west of
Rectory provides better opportunity for a revitalized and sustainable pedestrian-oriented
commercial corridor due to its:
• Heritage building stock
• Smaller parcel fabric
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Re-establishing Value – A Plan for the Old East Village – Page 8
•
•
•
•
Higher quality buildings
Continuity of street-level storefront
Lack of gaps created by street-oriented parking lots
Lack of large scale re-development projects
The following graphic shows that while there are some excellent assets throughout the
commercial corridor, these assets are concentrated on certain blocks.
Dundas Street Assets – Buildings
* = Excellent Building
Finding #7:
Social services are extremely valuable to the London community and likely
service a meaningful number of residents in the surrounding community.
However, there is an over-concentration of social services along this
corridor – particularly in strategically important areas for the health of the
commercial streetscape.
Evidence:
Following a site tour, and based on the preliminary analysis in Appendix 2, PACT members
agreed strongly that there are too many social services concentrated on the Old East Village
corridor. What’s more, several of these uses are concentrated along the Dundas Street
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Re-establishing Value – A Plan for the Old East Village – Page 9
frontage of blocks which are strategically
most appropriate for revitalization.
A
concentration of social services such as
these, in such locations, can:
• Discourage
consumers
from
shopping
on
the
corridor
• Present a negative
retail image of the
corridor from a retail
consumer’s perspective
• Discourage the use of the corridor by the surrounding
community who may not see the relationship between
these uses on the corridor and their everyday needs;
• Break-up the continuity of the retail streetscape, making
pedestrian usage of the streetscape less appealing and
less likely.
• Introduce a high concentration of London’s most
vulnerable populations – a situation most would admit is
not conducive to attracting commercial customers
It should be recognized that the existence of social services on the corridor, in itself, is not a
significant issue. It is the concentration of such uses at strategically disadvantageous locations
that presents the problem for the commercial corridor.
Finding #8: There is very little connection between the Western Fair and the community
OR the Western Fair and the commercial corridor.
Evidence:
The PACT felt that the Western Fair is extremely inward focused and it appears that the Fair
has made a deliberate effort to internalize and disconnect themselves from both the residential
community and the commercial corridor that they are directly adjacent to. Consider the
following:
• The IMAX theatre turns
it back to King Street.
A fence separates the
building from the street.
There is no attempt to
integrate
this
commercial
entertainment use with
the
commercial
streetscape.
• The
Western
Fair
stores surplus items
along the chain link
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Re-establishing Value – A Plan for the Old East Village – Page 10
fence that fronts onto King Street.
• The Western Fair purchased and demolished a large number of old homes (some pre-dating
the beginning of the 20th century) for the purpose of developing a parking lot. Although the
PACT could not discern whether the work was completed, they were surprised to see that, to
date, the lot has been developed using “rough” gravel and has not incorporated any
landscaping or design elements.
• The Western Fair Archive, housed in the first Art Gallery in London, turns its back on Dundas
Street, despite the fact that it is fronting onto Dundas. The operation locks the doors that
face Dundas and provides no signage exposed to the street. All parking, signage and
access are from the internal driveway system of the Fairgrounds.
• No efforts have been made to improve the Queens Park at Western Fair. As noted above,
portions of the fence (posts in some places) have been left up since the Fair closed in
September (it is January now). Signage is broken. So many internal drives and pathways
have been developed within the park (presumably to accommodate parking of trailers and
other events related vehicles) that the park is largely unusable for active recreation. The
park is frequently occupied by such events-related vehicles.
• There is no evidence of cross-promotional marketing campaigns between the Western Fair
and, for example, restaurant services offered on the Dundas corridor.
• The Western Fair recently chose to re-locate their office function on York Street – this could
have been an excellent opportunity to tie the operations of the Fair to the Dundas Corridor
had they chosen a location on Dundas Street.
Finding #9:
There is abundant parking available at strategically advantageous locations
along the corridor. However, physical linkages between these parking
spaces and the commercial corridor are not clear and, in some cases,
could make users vulnerable to criminal activity (eg. narrow alleyways).
Evidence:
The map under Finding #6, which showed the Old East Village’s assets, illustrates where there
is low cost public parking. This parking is in an excellent location to accommodate potential
customers as the commercial corridor revitalizes. The PACT believes that eliminating or
reducing this parking would extremely detrimental to the viability of this commercial revitalization
plan.
However, the PACT found that there is no clear signage, paving treatment, lighting or
landscaping which sets out the intended linkage between these parking lots and the commercial
corridor. In some cases narrow alleyways at mid-block appear to be the intended connection.
In once case, a gravel covered lot of a previously demolished building is the apparent linking
point between the Marshall Street parking lot and Dundas Street. This is not appropriate.
Finding #10: Traffic management practices in this area are disadvantageous to BOTH
the community and the commercial corridor.
Evidence:
There are several traffic management practices that the PACT feel are inappropriate and, in
fact, contributing to the underlying problems of the Old East Village Corridor:
• Left turns are not allowed for southbound traffic on Adelaide onto Dundas Street. This
makes accessing the Dundas corridor from the north very difficult. Other very busy four lane
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Re-establishing Value – A Plan for the Old East Village – Page 11
roads that cross Dundas Street in the Core area only limit left-hand turns during rush hour.
This would be preferable over the current restriction on left turns at all times.
• Traffic lights don’t appear to be timed to promote the
effective flow of traffic on the corridor. This likely
relates to a relatively low priority given to Dundas
Street flows in this area – a priority that should
change to recognize the importance of this corridor.
• The pedestrian mall (“s” curve), developed in the
1970’s reduced traffic on Dundas Street. As Part of
the recommendations coming out of the Mayor’s
Task Force on Old East London in 1998, the “s”
curve was removed and on-street parking took its
place. While it is relatively clear that the introduction
of the “s” curve was detrimental, it is less clear as to
whether the removal of the “s” curve has helped the
commercial corridor at all.
• When the “s” curve was introduced, Queens Avenue
was converted from a 2-way street to a 1-way street
and is now designated as an Arterial Road. The
neighbourhood has very clearly expressed
discontent with this traffic infrastructure. The PACT agrees that a 1-way Queens Avenue,
designated as an Arterial Road, between Woodman and Adelaide, is detrimental to the
neighbourhood for the following reasons:
o Arterial Roads do not belong within neighbourhoods. The City of London Official
Plan defines an Arterial road as serving “high volumes of intra-urban traffic”.
Primary collector roads serve “light to moderate volumes of inter-neighbourhood
traffic” and Secondary collector roads serve light volumes of traffic for short
distances between local and arterial streets”
o 1-way traffic tends to move faster than 2-way traffic
o neighbours, and police, report a high incidence of accidents along this stretch of
Queens Avenue (although empirical evidence has not been researched by the
PACT)
o Queens Avenue presents a psychological and physical barrier (particularly for
families and children) between the community and the commercial corridor.
• Furthermore, the PACT believe that it is not necessary to maintain Queens Avenue as a 1way road between Woodman and Adelaide for the following reasons:
o Queens Avenue, between Woodman Avenue and Adelaide Street operated as a
two-way street in the past. It should not require significant improvements to
revert back to this former format.
o Traffic volumes on Queens Avenue between Woodman Avenue and Adelaide
Street are relatively low – 7,000 vehicles per day (comparable to many collector
– not Arterial – roads)
o Changing Queens Avenue to 2-way traffic would place more traffic on Dundas
Street which is desirable for this commercial area.
o Given the 7,000 vehicles per day that Queens Avenue currently accommodates,
it is not expected that changing this road to 2-ways would result in an increase in
traffic on Dundas of more than approximately 3,000 vehicles per day (slightly less
than ½ of that currently accommodated on Queens Avenue). PACT members
believe that this can be easily accommodated on Dundas Street without
significant changes to the existing infrastructure.
_______________________________________________________________
Re-establishing Value – A Plan for the Old East Village – Page 12
o
o
Recent construction projects in the area forced many drivers to use Dundas
Street as a alternative “detour route“. There were no problems resulting from this
shift in traffic volume onto Dundas.
The parking lots behind the commercial blocks on the north side of Dundas
Street would become much more easily accessible (consider access from
Adelaide Street) if Queens Avenue were 2-way.
Finding #11: The “pieces” and ingredients of a viable arts, entertainment and recreation
node already exist in this area. However, the pieces of this asset have not
been coordinated, nor effectively built upon.
Evidence:
• The community includes affordable residential real estate
• The commercial corridor offers inexpensive space for studio uses and can serve as an
incubator for smaller independent commercial uses
• It is within the Core of the City – where “the action is”
• The area is steeped with history and presents a heritage environment
• There are some excellent performance venues that are regularly used – The Palace and
Aolean Hall
• The Forest City Gallery – London’s oldest gallery – currently exists in Aolean Hall
• The Western Fair includes the City’s largest single entertainment and recreation complex,
including:
o The IMAX theatre
o The Western Fair Slots
o The Western Fair Raceway and Paddock Dining Lounge
o The Western Fair 4-pad arena which caters to tournaments that include out-ofcity teams
o The annual Western Fair
o The regular events that occur on the Fairgrounds
• There are some excellent restaurants within the corridor that provide entertainment value
• There are a number of bars/pubs along the corridor
_______________________________________________________________
Re-establishing Value – A Plan for the Old East Village – Page 13
3.0 POSITIVE CHANGES TAKING PLACE IN OLD EAST VILLAGE
While the major findings listed above still hold true, it is
important to recognize that some very positive steps have
been taken by important stakeholders in the corridor. In
addition to the accomplishments listed in Section 1 of this
report, the following are some examples:
• Following
the
Mayor’s Task Force
on Old East London,
the “s curve” has
been removed from Dundas Street and that street has
been realigned. Simultaneously, the City of London has
installed paving stones, pedestrian bump-outs, on-street
parking, decorative street furniture, street trees and new
lighting along Dundas Street from Adelaide to Elizabeth
Street (the Business Improvement Area).
• The BIA has forged a positive working relationship with
the City of London’s Environmental Services Department
which has resulted in the refurbishment of various
streetlights (outside the BIA area); the installation of
needed garbage receptacles and the hanging of
Christmas decorations along the corridor.
• The BIA has begun to develop a working relationship with the London Economic
Development Corporation – specifically with business attraction and retention staff at LEDC.
• The BIA has developed a positive working relationship with the City of London Planning
Division to help with existing incentives applicable to the corridor and to help property
owners understand various planning and Building Code regulations.
• The Western Fair sponsored the Old East Village BIA community consultation presentation
at Aolean Hall – a generous and positive step towards reaching out to the community.
• The Covent Garden Market has become involved in supplying weekly food items to the
Children’s Nutrition and Learning Project hosted at Lorne Avenue Public School – an
excellent and innovative relationship between the Old East Village and an important
Downtown partner.
• The London Intercommunity Health Centre has initiated a series of excellent leading-edge
programs which outreach to the community in various ways. They continue to be one of the
community’s most valued partners and wish to continue their role as a major champion of
community improvement in the Old East Village. Their efforts to date cannot be over-stated.
What is much more important than the substance/product of these actions is the symbolic
changes that they represent – that is, they signal a change in attitudes and new relationship
building that is being realized for the first time between the BIA and various stakeholders. This,
in large part, is the result of having a dedicated full time staff in place to manage the BIA and
the revitalization effort.
Re-establishing Value – A Plan for the Old East Village – Page 14
4.0
THE APPROACH
There are many approaches that were considered by the PACT. Some members suggested
that a plan be delivered which gave 3-5 specific and achievable short term recommendations
that would begin the revitalization process. Others preferred to develop a very comprehensive
list of recommendations which would represent a multi-layered approach to revitalization.
Some focused on design, while others focused on economics.
The following explains some important principles of the approach taken by the PACT:
• Identify underlying problems facing the corridor, NOT just the symptoms of these problems
• Develop a clear vision – use an example that will help everyone understand the endpoint
goal
• Look at the “big picture” – don’t focus on the corridor exclusively, consider its context
• Think “long range” when developing a strategy for revitalization
• Think “short range” when developing specific actions that will lay the foundation for
revitalization. Focus on achievable goals.
• Make sure recommendations are not overwhelming by establishing first priorities
• Build beachheads to make initial revitalization results noticeable and to create a sense of
positive change in the short-term.
An important note on trade-offs: One of the underlying problems relating to revitalizing the
Old East London corridor is that there is a strong temptation to “fix” everything. The BIA, and
the corridor itself, cannot be all things to all people. For example, there will be trade-offs
between commercial viability and the provision of social services. It is important that these
trade-offs are recognized and that a balance is struck which allows for the corridor to revitalize.
Failing to understand these trade-offs, and attempting to satisfy all groups and functions will
undermine the revitalization process.
Re-establishing Value – A Plan for the Old East Village – Page 15
5.0
THE VISION
5.1 Community Consultation – Results From Focus Group Meetings
The BIA held many community focus group meetings in 2002 to ascertain the opinions of the
community. These meetings, and the summary document that was prepared as a result (see
Appendix 3), are extremely useful in assessing the vision that people have for their community.
The following are directly quoted headings under the subject of community vision:
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Beautification
Village-type Shops
Safe Neighbourhoods
Restoration of Historic Buildings and Homes
Communication of Community Resources and Activities
New Image in the Rest of London
Fairs and Festivals
Guided History Tours
A Community Council With a Paid Coordinator
More Multi-Unit Affordable Housing – like Tolpuddle
More Self-confidence, Participation and Involvement in Decision Making
A Community Where Everyone Has Enough – Beyond Survival
A Stronger Arts Presence
Improved Lighting
A Classy Supermarket
Maintenance of Properties by Absentee Landlords
More Employment For Those Who Want/Need to Work
Recreational Opportunities
Allies at City Hall and Other Levels of Government
Responsible Bar Owners
Improved Recreational Facilities for Youth
Improved Health Services
5.2 Presentation of Community Results – Performance on October 18th
On October 18, 2002 the Planners Action Team was treated to a ”Celebration and Presentation
of Focus Group Findings” at Aolean Hall. This event included a variety of performances, one of
which was a play entitled “Everything Old is New Again”. The play was written and performed
by members of the London Community Players and was intended to represent a summary of
the vision expressed through the community consultation process.
The play was excellent. It was well written and well performed and gave life to the expressions
of the community through the consultation process. The PACT would like to caution the
community on two points relating to the vision that was expressed through the play:
1. The revitalization of the Old East Village Corridor should not, in the view of PACT, be
based on an expectation of gentrification. There were hints to this in the performance
(eg. red wine, expensive shopping and expensive restaurants).
2.
There will be no quick fix for revitalizing the Old East Village Corridor. It is not realistic
to expect a “turnaround” within a one or two year period as alluded to in the report.
Positive change will be incremental and will take time. There are no silver bullets.
Re-establishing Value – A Plan for the Old East Village – Page 16
Recognizing these two points of caution, the participants should be applauded for developing an
excellent, creative, and entertaining vehicle for presenting the findings of the community
consultation.
5.3 Wortley Village – An Instructive Example to Form a New Vision For East London
Recognizing the values that the community expressed for a vision of Old East London, the
PACT felt that it would be very instructive to use a successful commercial corridor as a realistic
vision for the Old East Village. People can easily relate to concrete examples. An example
helps people to visualize an endpoint – a visual image which embodies their goals for their
community and commercial corridor.
Wortley Village is a successful commercial corridor which exists in the heart of an historic
neighbourhood and the PACT feels that a modified version of Wortley Village is a clear and
tangible vision worth pursuing. Recognizing this, it should be clear that the Old East Village is
physically and contextually very different from Wortley Village. However, Wortley Village
provides a tangible illustration of a commercial corridor that:
1. Provides a focal point for the surrounding residential community;
2. Offers goods and services which are useful to, AND USED BY, the surrounding
community;
3. Does not emphasize “high income” goods and services (consider Value Mart;
Wortley Roadhouse; the pharmacy, Tuckey Hardware, the butcher and the bakery);
4. Offers some goods and services for a broader London market – some of which relate
to higher incomes;
5. Offers some health and social services, without over-concentrating such uses;
6. Builds upon a heritage theme – focusing on heritage buildings;
7. Fosters a unique identity that cannot be replicated elsewhere in London;
8. Is a pedestrian-oriented streetscape, while not excluding automobiles;
9. Is modest and manageable in size.
These characteristics are core to the vision that the PACT has for the Old East Village and are
consistent with many of the values expressed through the community consultation process.
The PACT feels that a vision of a modified “Wortley Village” (modified to recognize that the
physical form is more “urban” and intense) is practical and very instructive for leading a
revitalization effort in the Old East Village.
Re-establishing Value – A Plan for the Old East Village – Page 17
Re-establishing Value – A Plan for the Old East Village – Page 18
6.0
THE STRATEGY
The revitalization strategy developed by the PACT is designed to address the most important
underlying issues which are affecting the corridor (as identified in Section 2.0 of this report).
The following diagram shows the five “prongs” of this strategy:
1. Improve the desirability of the surrounding
neighbourhood.
2. Strengthen the connection of the
neighbourhood to the corridor
3. Create a Village Core and concentrate
revitalization efforts there (focus & priority)
4. Support the transition of the remainder
of the corridor
5. Develop entertainment, recreation and
arts opportunities
Improve the desirability of
the commercial corridor
It should be emphasized that the five elements of this strategy can be implemented in many
different ways. This Plan will give specific recommendations for implementation. However, it is
important to recognize that the strategy leaves open many options for various programs,
expenditures, and other implementation techniques which are focused on one of the five
prongs of this strategy.
This strategy will help to focus the revitalization effort and give it clear direction and purpose.
With the vision and strategy in hand, specific revitalization initiatives can be taken to improve
the corridor in an effective and coordinated way.
Re-establishing Value – A Plan for the Old East Village – Page 19
7.0 THE STAKEHOLDERS
There are many stakeholders who are affected by the Old East Village and/or directly affect
the Old East Village. The most obvious and significant stakeholders are the community
residents who live in the surrounding area and the property and business owners along the
corridor. Four major stakeholders who will shape the success of this plan are:
•
•
•
•
The City of London
The Western Fair
The Old East Village BIA including commercial corridor property & business owners
Area residents
While the stake of the property owners, business owners and area residents is obvious, the
following describes what is at stake to the City of London and the Western Fair:
How is the City of London affected by the Old East Village?
• Old East London property assessment is undoubtedly declining, meaning the area is
generating lower tax revenues than it did in previous years. It is also important to consider
the opportunity that is being lost for tax revenue growth beyond previous years – a scenario
that would be realized if revitalization occurs.
• The City’s image is affected by blight which is beginning to occur along London’s longest
commercial street (from the Forks to beyond Clarke Road). Such image issues can detract
from various economic opportunities such as tourism and business attraction.
• London City Council has invested significantly in the Downtown. This investment is not
enhanced by a blighted commercial corridor at its doorstep.
How is the Western Fair affected by the Old East Village?
• The Western Fair is surrounded by the Old East Village – both the commercial corridor and
the residential neighbourhood. The further decline or blight of this area will leave the
Western Fair as an “island” within an undesirable and potentially dangerous area. This is
obviously to the disadvantage of the long term health of the Western Fair’s overall business
activities.
• The Western Fair’s image is tied to the quality of the environment that surrounds it.
• While the Fair appears to be currently successful, it could be even more successful as an
integrated part of a revitalized East London community.
Commitment Required by the Stakeholders
As discussed at the beginning of this report, this plan requires commitment from both of the
above stakeholders. There needs to be a shift in culture within these organizations to put the
health and viability of the Old East Village higher up in their priority lists. They need to explore
ways to help the revitalization of this corridor. They need to commit their efforts, budgets and
business practices to play a role in revitalizing the area. Their own success relies upon it.
Re-establishing Value – A Plan for the Old East Village – Page 20
8.0 THE PLAN
The following is a detailed plan for revitalizing the Old East Village. Revitalization initiatives are
structured to follow the 5-pronged strategy discussed above. Each section provides a range of
initiatives, in order of priority. A following section of this report will emphasize the most
important short-range initiatives that should begin as soon as possible.
8.1 Improve the Desirability of the Surrounding Neighbourhood
To improve the commercial corridor in the Old East Village one needs to look beyond the
corridor itself. As discussed in Section 2 of this report, it is clear that the community which
surrounds the corridor has lost value and identity within the broader community of London. The
following are initiatives that should be taken to re-establish value in the community:
#1 Re-develop Queens Park
• Stakeholder Responsible: City of London
• Cost: $20k-$30k
• Discussion: As noted in Section 2, this park is virtually unusable in its current form. It
should be re-developed to introduce child-related and active recreational facilities that are
easily visible from the street (eg. splash pad, tot lot, basketball court, etc.).
#2 Improve the Carson Library
• Stakeholder Responsible: City of London; Library
Public Library Board
• Cost: Requires Further Research
• Discussion: Carson library needs to be improved.
Maintenance levels are extremely low in the parking
lot, building exterior and building interior. The City
may wish to explore other opportunities for locating
the library (eg. ground floor of Aolean Hall)
#3 Return Queens Avenue to a Collector Road
Status and allow two-way traffic between
Woodman Ave and Adelaide Street
• Stakeholder Responsible: City of London
• Cost: Low
• Discussion: Section 2 of this report discusses this
issue in detail. This action is a critical part of this
plan.
#4 More vigilantly enforce property
standards and boulevard parking bylaws
• Stakeholder Responsible:
Old East
Village BIA; Community; City of London
• Cost: No additional costs to City
• Discussion: It was very apparent to the
PACT that these by-laws were not being
well enforced.
Given that the City
Re-establishing Value – A Plan for the Old East Village – Page 21
enforces these by-laws on a complaint basis, it will be the role of the BIA (in the absence of a
community association) and the community to recognize infractions and report them to the
City’s By-law Enforcement staff
#5 Improve ongoing maintenance of public infrastructure (repairs and cleaning)
• Stakeholder Responsible: Old East Village BIA; Community; City of London
• Cost: No additional costs to City
• Discussion: Primarily, the City of London will be responsible for stepping up its efforts to
keep public lands well maintained in Old East London. The key will be to raise the profile of
this area within the work programs of the relevant City of London staff. The community and
BIA will be responsible for identifying maintenance requirements that have not been attended
to.
#6 Dedicate a person or team at City Hall to act as a liaison/trouble-shooter for the BIA
• Stakeholder Responsible: City of London
• Cost: No additional costs to City
• Discussion: As has been noted, a cultural shift is required to raise the profile of the Old East
Village and its surrounding neighbourhood within the work program of the City of London. It
would be extremely helpful if an individual staff member, or an inter-departmental team of
staff, are identified as a the liaison for the Old East Village BIA. The purpose of the liaison will
be to provide the BIA with a familiar, consistent and well-informed contact at City Hall that can
help to resolve issues.
#7 Move up the timing on the City’s plan to designate the Lorne Avenue Heritage
Conservation District
• Stakeholder Responsible: City of London; Community
• Cost: No additional costs to City beyond long term budget already established to prepare
Heritage Conservation District Studies and Plans
• Discussion: In April of 1999, a document was published by the City of London which listed
potential heritage conservation districts and assigned a priority for proceeding with specific
heritage conservation district plans. So far, two such districts have been designated by
Council. Lorne Avenue is listed as the eighth priority on the list. To bring attention to the
heritage value of this area, this Heritage Conservation District should be moved up to next on
the list of Districts to be studied and designated.
#8 Install Video Surveillance Cameras Along Dundas Street
• Stakeholder Responsible: BIA/City
• Cost: Requires further research, recognizing that a video surveillance headquarter already
exists at City Hall.
• Discussion: Cameras have already been installed in the Downtown Area. A system and
staff are already in place to monitor activity being displayed by these cameras. This program
should be extended to the Old East Village from Adelaide to Egerton along Dundas Street.
The BIA, or another group, could lead a fund-raising campaign similar to the one launched to
pay for Downtown cameras.
#9 Improve and Landscape the New Western Fair parking facility at King and Ontario
• Stakeholder Responsible: Western Fair
• Cost: Low
• Discussion: The Western Fair recently purchased and demolished a number of older
residential buildings on the northwest corner of King and Ontario streets. To date, this lot is
Re-establishing Value – A Plan for the Old East Village – Page 22
surfaced with gravel. It should be paved, landscaped and generally developed to a quality
design standard that does not detract from the community.
#10 Consider improvements to the school yard at Lorne Avenue Public School and
commit to keeping the school open for the long term
• Stakeholder Responsible: Thames Valley District School Board; Community
• Cost: Low
• Discussion: This community has very little park space. Between Quebec, Adelaide, the CN
tracks and CP tracks, there is virtually no green space for children to play. The Boyle
Community centre is east of Quebec Street and is not realistically accessible to young
children in this community. The Lorne Avenue facility is extremely important to this
community and should be improved to allow for some green space. Furthermore, a
commitment should be made by the School Board to maintain this school for the long term if
at all possible. Uncertainty surrounding this issue is detrimental to the value of the
community.
#11 Work to retain Aolean Hall, recognizing its important function within the
community
• Stakeholder Responsible: Old East Village BIA; community; property owners
• Cost: Requires Further Research
• Discussion: The Aolean Hall is a vital component of the East London neighbourhood. It
represents a meeting place where musical and other performances are often hosted. It is the
symbolic heart of the area, given its status as the Town Hall for the former municipality of
East London. It is an excellent heritage building which adds a tremendous character and
history to the community. Any and all opportunities to preserve it should be explored by the
BIA together with its owners, the City, and prospective purchasers. The loss of this building
as a facility available to the public would be a significant blow to the community.
8.2 Strengthen the Connection Between the Residential Community
and the Commercial Corridor
The PACT believes that the revitalization of the corridor must start by attracting neighbourhoodoriented commercial uses. To support such uses, there must be a strong connection between
the community and the commercial corridor. In other words, the community must actually use
the corridor to purchase commercial goods and services. As stated in Section 2, this is not
currently the case. The following recommendations are intended to establish and strengthen
this linkage.
#1 Return Queens Avenue to a Collector Road Status and allow two-way traffic
between Woodman Ave and Adelaide Street
• Stakeholder Responsible: City of London
• Cost: Low
• Discussion: This recommendation is worth repeating under the strategy of strengthening the
community/corridor connection. Returning Queens Avenue to a collector road status in the
City of London Official Plan and allowing for two-way traffic between Woodman and Adelaide
would have a dramatic effect on the linkage of the corridor to the community. A one-way
arterial road obviously does not belong within the heart of the community (see Official Plan
policies for arterial roads) and effectively isolates the residential area from the corridor.
Re-establishing Value – A Plan for the Old East Village – Page 23
#2 Allow for southbound left turns onto Dundas Street from Adelaide Street during
non-rush hour time periods
• Stakeholder Responsible: City of
London
• Cost: Negligible
• Discussion:
Currently, Queens
Avenue discourages a pedestrian
linkage between the community to
the north and Dundas Street.
Disallowing left turns onto Dundas
Street by southbound traffic on
Adelaide exacerbates this problem.
Recognizing that there is inadequate
room for left turn stacking lanes on
Adelaide Street, it would be
appropriate to limit left turns to nonrush-hour time periods – much like
other north-south streets that cross
Dundas in the Core.
#3 Focus Business Recruitment on Businesses That Can Service The Community
• Stakeholder Responsible: BIA
• Cost: None beyond BIA operation costs
• Discussion: The BIA needs to understand community shopping patterns relating to their
regular needs and identify potential niches that could be serviced by the Old East Village.
Once identified, the BIA should aggressively recruit these businesses and attempt to
concentrate them on the corridor. This should be the among the highest of priorities for the
BIA.
#4 Develop a Buy At Home Program and Community Newsletter
• Stakeholder Responsible: BIA and Corridor business owners
• Cost: Printing and delivery costs to BIA; potential discounts to business owners
• Discussion: The community needs to be engaged to feel a commitment to shop on the
corridor. This will be difficult at first, given that there are very few uses currently existing on
the corridor that actually offer services that the community can use. However, there are
some. The BIA needs to inform the community about these uses and develop a program to
provide discounts to community residents who use them (eg. frequent customer cards,
coupons in newsletters, etc.).
8.3 Create a Village Core and Concentrate Revitalization Efforts There
#1 Establish boundaries for a Village Core, Village Annex and Area of Transition
• Stakeholder Responsible: BIA
• Cost: None
Re-establishing Value – A Plan for the Old East Village – Page 24
• Discussion: The following diagram shows three distinct “districts” which have been identified
by the PACT to:
o Recognize that certain segments of the corridor are more plausible to revitalize than
others
o Focus revitalization priorities
o Concentrate successes to allow for a visible beachhead to be established – this can
be built upon as the revitalization movement grows
o Differentiate policy goals and objectives for different segments of the corridor
o Differentiate regulatory frameworks for different segments of the corridor
o Differentiate business practices of the BIA for different segments of the corridor
o Differentiate incentives for different segments of the corridor
o Allow for theme development and identification
o Give the Public an identifiable “comfort zone” – the Village Core - until revitalization
spreads further down the corridor
These districts were created recognizing pedestrian streetscape continuity, quality of the
building stock, unique character, access to public parking facilities, presence of positive
businesses, quality of public infrastructure, potential long term viability as a commercial corridor.
The following pages show each district and give a photographic representation of the buildings
and businesses that currently exist within that district. This gives a concrete sense of what each
area represents.
The Village Core extends from Adelaide Street to Elizabeth Street on the south side and from
Adelaide Street to the Palace theatre on the north side. While most of this Core is occupied by
small-scale buildings, most of which are heritage structures, one segment of the Village Core is
occupied by large scale redevelopment projects. This portion of the Village Core may be
treated slightly differently than the rest of the Core (eg. re-development may be permitted here,
where it will be discouraged elsewhere on the corridor).
#2 Establish Goals and Policies for the Village Core
• Stakeholder Responsible: BIA
• Cost: None
• Discussion: The Village Core is to serve as the beachhead for revitalization. It will be the
focal point of revitalization efforts. Policies which the BIA may establish for this area should
be considered by the City of London for inclusion in their Official Plan and should be clearly
understood by all stakeholders. The following are some simple policy directions for the
Village Core:
o The heritage building stock will be retained – demolition will be actively
discouraged
o The Palace Theatre building will be retained
o Small-scale building frontages will be retained
o Large scale buildings will not be permitted
o Pedestrian streetscape continuity will be retained
o New surface parking lots will not be permitted
o Ground floor commercial continuity will be retained
o Public parking serving the Village Core will be retained
o Offices, residential, institutional and other non-commercial uses will not be
permitted at ground level
o Further concentration of social services in the Village Core will be discouraged
Re-establishing Value – A Plan for the Old East Village – Page 25
o
o
o
o
Recruitment practices by the BIA will focus on attracting commercial uses that
serve the surrounding community
Recruitment practices by the BIA will place a priority on filling ground floor
commercial space.
Recruitment practices by the BIA will attempt to concentrate new uses within the
Village Core.
Within the area which currently includes the Centretown Mall, the Goodwill Thrift
Shop and the London Intercommunity Health Centre, redevelopment projects will
be supported if they are shown to enhance the streetscape and provide for
commercial activity with a pedestrian-orientation.
#3 Change Zoning Applied to the Village Core
• Stakeholder Responsible: City/BIA
• Cost: None
• Discussion: The current zoning applied to the Village Core compounds a Business District
Commercial zone with an Office Residential Zone that would allow for a large scale
office/residential buildings of up to 250 units per hectare and at a height of 46 metres. This is
inappropriate within the Village Core and is totally contrary to the policies described above.
The Office Residential (OR*D250*H46) Zone should be removed from the Village Core area.
The zoning applied to the Palace Theatre – the eastern-most property within the Village
Core- also compounds the OR*D250*H46 Zone. This should be removed. Furthermore, the
current BDC(9) Zone on the Palace Theatre site should be compounded with the BDC(2)
zone to prevent surface parking lots on the site (an apparent over-sight in the current
zoning).
#4 Enhance the Incentive Package Currently Offered in the Old East Village
• Stakeholder Responsible: City/Western Fair
• Cost:
Building Code Loan Program - $200,000 to establish revolving loan fund
Rehab. & Redev. Grant Program – simply delays increase in taxes
Awning & Sign Grant Program - $10,000 per year maximum
• Discussion: Currently, the Old East Village BIA extends from Adelaide to Elizabeth.
Incentives currently offered by the City apply only to properties within this BIA boundary.
There is no legislative requirement that City incentive areas must conform with the BIA (eg.
Downtown incentive area is larger than Downtown BIA). Incentives should be explicitly
offered to the Village Core Area as defined by this Plan.
The City currently offers two specific incentives to the BIA: (1) A façade improvement loan
program which offers up to ½ of the value of façade work, up to $25,000; and (2) Waiving of
development charges for new residential development. It is recommended the following
incentives also be offered so that the incentive package relating to the Village Core is
consistent with that offered in the Downtown:
• Upgrade to Building Code Loan Program: City offers ½ of the value of
building improvements relating to health and safety (Building Code) work up to
$50,000.
• Rehabilitation and Redevelopment Grant Program: City grants back a portion
of any tax increase that results from major improvements to existing buildings.
In those cases where a re-development project is being proposed, this
Re-establishing Value – A Plan for the Old East Village – Page 26
incentive should only be applicable in the Village Core if the street façade is
maintained.
• Free Building Division staff site visit to inform property owners of evident
Building Code issues that they will need to address if they are improving their
properties – this minimizes risk for renovation projects.
The Western Fair could contribute significantly to the Old East Village if it were willing to
subsidize an Awning and Sign incentive program. Such a program could be structured as
follows and have a time horizon of two years:
• Western Fair provides a grant for 1/3 of the value of a new sign or awning
(including installation), up to $1,000 towards – ONE grant per property
• City of London provides a loan for up to ½ of the value of the new sign or
awning (including installation) up to $25,000 (through the Façade program)
• The BIA and City would need to approve the design of the sign or awning to
ensure that it is in keeping with the objectives for the Village Core
• This program could be funded by the Western Fair, and administered by the
BIA
Such a program would be a clear demonstration that the Western Fair is meaningfully
reaching out to the Old East London community and earnestly working to improve the
commercial corridor.
Council may also want to consider other incentive programs (there are many good programs
that have been introduced in other municipalities), by directing a small portion of the profits
that come to the City from revenues generated at the Slots at Western Fair. This would be
another clear symbol that this money is contributing back to the community within which the
Slots facility is located.
#5 Develop a Convert to Rent Program
• Stakeholder Responsible: BIA/City
• Cost: $150,000 already secured
• Discussion: As described in Section 1.5 of this report, the Old East Village BIA has been
successful in securing a grant through the City of London Affordable Housing Initiative for
$150,000 to begin a convert to rent housing initiative. This should be applied to the Village
Core area (in addition to other areas along the corridor).
#6 Develop a BIA Recruitment Program
• Stakeholder Responsible: BIA
• Cost: None beyond existing staffing of BIA
• Discussion: As described above, a BIA recruitment program is an important part of
revitalizing the Village Core. Recruitment efforts should focus on filling space in the Village
Core and the concept of developing a visible beachhead of visible improvements should not
be lost. The BIA should prepare an inventory of space within the corridor to understand what
space is available, the condition of the space, the likely requirements for improvements to
accommodate tenants, utility costs, taxes, etc. so that it can match vacant spaces to potential
businesses. The BIA should scan the City for uses that they may be able to recruit (it may
even be appropriate to recruit a use from elsewhere along Dundas Street). As noted above,
recruitment should focus on uses that sell goods and services useful to the surrounding
community.
Re-establishing Value – A Plan for the Old East Village – Page 27
#7 Establish A Business Retention Program
• Stakeholder Responsible: BIA
• Cost: None beyond existing staffing of BIA
• Discussion: Retention is just as important as recruitment. Once positive uses are brought to
the corridor, they need to be supported and retained. Regular meetings should be scheduled
with existing business owners to educate them on specific topics (eg. visual marketing),
coordinate their efforts (eg. joint promotional programs) and discuss issues. The BIA should
work with existing businesses, or hire consulting experts, to help them develop business
strategies, improve business practices, and create effective marketing programs.
#8 Improve Physical Linkages from Public Parking Facilities
• Stakeholder Responsible: City
• Cost: Requires Further Research
• Discussion: Currently physical linkages between the public parking facilities available behind
the Village Core are poor. These should be enhanced through directional signage,
landscaping/sidewalk treatment and improved lighting.
#9 Improve Timing of Traffic Signals
• Stakeholder Responsible: City
• Cost: Negligible
• Discussion: The PACT noticed, and others confirmed, that the traffic signals along Dundas
Street are not well timed to allow for reasonable traffic flow. Although the goal is not to
encourage high speed traffic along Dundas Street, the current timing of lights can cause
frustration for drivers and pedestrians.
#10 Develop Strategic Marketing Programs
• Stakeholder Responsible: BIA
• Cost: Variable
• Discussion: General marketing for the Village Core will not be effective. Below are some
ideas that should be considered:
o Build upon the heritage theme of the Village Core
o Develop themed marketing packages – eg. restaurant packages
o Cooperate with the Western Fair to cross promote – market and promote to large
events held at the Fair
o Promote to hockey tournament groups at the Western Fair
o Promote parking availability – consider promoting parking availability, behind the
Core Village, during various Western Fair events
#11 Consider Installing Gateway Features and Signage at Dundas/Adelaide and at the
Palace Theatre
• Stakeholder Responsible: BIA/City
• Cost: Requires Further Research
• Discussion: The Village Core needs to be distinguished from the remainder of the corridor.
This can provide an identifiable “comfort zone” for shoppers until such time as revitalization
extends further down the corridor. Gateway features could be created to make it clear that
they are entering the Village Core. A heritage theme should be emphasized.
Re-establishing Value – A Plan for the Old East Village – Page 28
The following graphic shows a conceptual drawing of how the vacant lot on the southern block
of the Village Core and the adjacent building which formerly housed Centretown Mall could be
adaptively re-used and re-developed to add vitality and aesthetic value to the street. Notice that
the building is not set back from the sidewalk, it includes large storefront window displays and
awnings and supports a pedestrian commercial environment. This is a key ingredient to any
infill proposal in the Village Core. The upper storeys can support residential or office uses.
Graphic prepared by Michael Hannay, B.E.S., BARCH – Urban Design
8.4 Support the Transition of the Remainder of the Corridor
There are two primary districts outside of the Village Core: the Village Annex and the Area of
Transition and Redevelopment. These two areas should be treated differently as described in
the following section.
#1 Establish Goals and Policies for the Village Annex
• Stakeholder Responsible: BIA
• Cost: None
• Discussion: The Village Annex is to serve as “connecting fabric” and future growth potential
for the Village Core. Its physical form as a continuous pedestrian streetscape is interrupted
by residential buildings, parking lots and other gaps. One block, between Lyle and Hewitt, is
particularly disadvantageous as a commercial corridor. It is acknowledged that this area will
likely not revitalize for some time and will rely upon the success of the Village Core to help
Re-establishing Value – A Plan for the Old East Village – Page 29
this revitalization process. There are several excellent buildings within the Village Annex that
should be retained, including the very important Aolean Hall.
o The Village Annex will act as a pedestrian connector between the Entertainment
and Recreation Zone and the Village Core. It is expected that over time the
revitalization of the Village Core will have a positive revitalizing effect on the
Village Annex.
o Revitalization efforts will not focus on this area until such time as the Village Core
is well established. While not a first priority, the Village Annex will also be
“serviced” by the BIA.
o Aolean Hall will be retained as a building of primary importance
o Recognizing the intent to support a pedestrian linkage function:
§ Retention of the heritage building stock will be encouraged
§ Retention of small-scale building frontages will be encouraged
§ Large scale buildings will be discouraged unless they are demonstrated
to effectively integrate with the continuous commercial streetscape
§ Retention of pedestrian streetscape continuity will be encouraged
§ Retention of ground floor commercial continuity will be encouraged
o Public parking serving the Village Core will be retained
o New surface parking lots will not be permitted
o New offices, residential, institutional and other non-commercial uses will be
discouraged on the ground floor
o Further concentration of social services in the Village Annex will be discouraged
o Within the block between Hewitt and Lyle Streets, re-development projects will
be supported. Such projects should enhance the streetscape and, where
possible, provide for commercial activity with a pedestrian-orientation. Retention
of the two residential heritage buildings on this streetscape will be encouraged.
#2 Establish Goals and Policies for the Area of Transition and Redevelopment
• Stakeholder Responsible: BIA
• Cost: None
• Discussion: The Area of Transition and Redevelopment includes some excellent buildings.
However, it also includes large gaps in the streetscape created by parking lots, major
institutional uses, office uses, light industrial uses, and residential clusters. This district is not
a viable part of the commercial corridor. While this does not mean that it will no longer
support any commercial uses, it is recommended that this area should be encouraged to
transition. Possible uses that may develop on the corridor include: multi-family residential;
office, or institutional uses. Light industrial uses and auto-oriented commercial uses may
also be supported. New development by the Western Fair should be encouraged within this
area – with the key intent of fronting such development onto Dundas Street. The following
are some simple policy directions for the Area of Transition and Redevelopment:
o Change will be supported within the Area of Transition and Redevelopment
o Multi-family residential development will be encouraged
o Re-development projects of a large scale will be supported
o While the integration of heritage buildings will be encouraged, preservation will
not be actively pursued as it is in the Village Core and Village Annex (with the
exception of specific buildings that may be heritage designated)
o The Western Fair will be encouraged to develop properties within the Area of
Transition and Redevelopment and to ensure that such development fronts onto
Dundas Street.
Re-establishing Value – A Plan for the Old East Village – Page 30
#3 Change Zoning Applicable to the Village Annex and Area of Transition and
Redevelopment
• Stakeholder Responsible: BIA/City
• Cost: None
• Discussion: The following changes should be made to zoning applied to the Village Annex
and the Area of Transition and Redevelopment:
o Village Annex:
§ The OR*D250*H46 zone should be removed for all of the Village annex
lands. Proposals for multi-family residential development (beyond the 3
storeys permitted by the BDC(2) Zone) should be considered on an
individual basis and should not be pre-zoned.
o Area of Transition and Redevelopment
§ The OR*D250*H46 and a Residential (R9-7) zone should be applied to
allow for higher intensity residential, office and mixed-use development.
#4 Enhance Incentives Offered in the Village Annex and the Area of Transition and
Redevelopment
• Stakeholder Responsible: BIA/City
• Cost: See above-cited costs
• Discussion: Incentives should vary between the Village Annex and the Area of Transition.
The same package of incentives offered in the Village Core should be offered in the Village
Annex (see above discussion for enhanced incentives in the Village Core). The Area of
Transition and Redevelopment should be offered the following incentives to encourage redevelopment and investment:
o Waiving of development charges for residential development
o Rehabilitation and Redevelopment Grant Program
o Waiving of parking requirements for new residential development
#5 Establish a Convert to Rent Program for the Village Annex and Area of Transition
and Redevelopment
• Stakeholder Responsible: BIA
• Cost: $150,000 already secured by BIA
• Discussion: As described above (Village Core), a convert to rent program should apply to
the Village Annex and the Area of Transition and Redevelopment.
#6 Provide An Illustrative Vision of How the Corridor May Transition
• Stakeholder Responsible: BIA/Community
• Cost: Negligible
• Discussion: It is worthwhile to prepare visual images to represent how the Village Annex and
the Area of Transition and Redevelopment. These illustrations do not need to be tied to
specific lands, but rather can provide conceptual images of the type of development that has
occurred elsewhere on revitalized and transitioned corridors. The PACT offers the following
images for the consideration of the BIA and the community.
Re-establishing Value – A Plan for the Old East Village – Page 31
Elevation: Concept for revitalization of front faced, including storefront – 702 Dundas Street
Perspective: Concept for medium scale housing/built form with front gardens
Above graphics prepared by Sonny Tomich, Senior Urban Designer, City of Hamilton
Re-establishing Value – A Plan for the Old East Village – Page 32
8.5 Develop Entertainment, Recreation and Arts Opportunities
As expressed in Section 2 of this report, the Old East Village has many of the ingredients for an
alternative artist community. The PACT recommends that these pieces be considered and
better packaged to encourage growth of this sector within the community
#1 Retain Aolean Hall
• Stakeholder Responsible: BIA/Community/Property Owners/City
• Cost: Requires Further Research
• Discussion: Aolean Hall is a key ingredient to the growth of arts in the community. The Hall
has been the focal point for musical performances for over a Century and it currently
accommodates the Forest City Gallery. The community must find a way to retain it.
#2 Seek Out And Support Controversial Arts and Entertainment
• Stakeholder Responsible: London Community Players/Forest City Gallery/BIA/Others
• Cost: Negligible
• Discussion: The PACT was surprised to learn that many of the most controversial plays in
London occur at the McMannus Theatre in Downtown London. The Palace Theatre is a far
superior venue for performances and its location is conducive to supporting an alternative
form of art. It is suggested that the London Players, the Forest City Gallery, and other artist
groups in the area should focus on theatre and arts that are outside of the main stream – to
differentiate themselves from Downtown facilities and to create an intrigue and reputation
within the arts community.
#3 Display Art in Vacant Window Spaces
• Stakeholder Responsible: BIA/Forest City Gallery/Other
• Cost: Negligible
• Discussion: A sense of art should be “in your face” within the corridor at all times. One way
to help achieve this is to display art within vacant window spaces. This should focus on the
Village Core area, but may also extend to parts of the Village Annex.
#4 Organize and Promote Art-oriented Events in the Village Core
• Stakeholder Responsible: Arts Community with support of BIA
• Cost: Requires Further Research
• Discussion: London currently does not have an arts festival. This presents an opportunity to
bring thousands of Londoners to the Village Core and develop the reputation of the area as
an alternative artists’ community. It will be important to activate the vacant storefronts of the
Village Core with art-related displays or temporary interactive art activities. The art festival
should include some revenue generating elements that can help to off-set the costs of
hosting the event.
Re-establishing Value – A Plan for the Old East Village – Page 33
9.0 IMPLEMENTATION AND PRIORITIES
Both the Introduction and Section 4 (The Approach) of this report stated that this plan would be
comprehensive. It has described the “big picture”. In doing so, it can be overwhelming. More
than thirty-five recommendations have been outlined in this report. It should be clear that the
entire plan cannot be implemented immediately. To attempt this would spread the revitalization
effort too thin and it would undoubtedly lose focus.
As described in Section 4, it is important to take incremental and deliberate steps towards
revitalization – while keeping the “big picture” in our minds at all time. Recognizing this, the
PACT has formulated a priority list (see following page). All items are important, but focus is
critical.
It is important that the BIA remain staffed. Their role should be to champion the revitalization
initiative. The fact that many recommendations coming out of the Mayors Task Force on Old
East London have not been implemented shows what happens when there is no single
champion to hold all stakeholders accountable to their commitments.
Finally, a point raised in the introduction of this report should be re-emphasized. The key to this
plan is re-establishing value in both the surrounding residential community and the commercial
corridor. All stakeholders must be committed to this goal. Indifference to the community and
corridor by important stakeholders such as the City Council and the Western Fair will render this
plan ineffective. These stakeholders and others must realize the value of the corridor to their
own goals and objectives and then entrench a commitment to the area within their business
culture and everyday practices. If they do, this plan will be successful.
JMF/jmf…y:\users\shared\policy\old east village\report2jan11.doc
Re-establishing Value – A Plan for the Old East Village – Page 34
Priorities Suggested by the Planners Action Team
Do
1st
Do
2nd
Improve the Desirability of the Surrounding Neighbourhood
Re-develop Queens Park
•
Improve Carson Library
•
Return Queens Avenue to Collector Road – 2 Way
•
More vigilantly enforce property standards/parking by-laws
•
Improve ongoing maintenance of public infrastructure
•
Improve Landscaping of new Western Fair parking lot
•
Dedicate a person or team at City Hall as liaison/trouble-shooter
•
Move up the timing of Lorne Ave Heritage Conservation District
•
Consider improvements to Lorne Ave schoolyard
•
Work to retain Aolean Hall
•
Install Vide Surveillance Cameras
Strengthen the Connection Between the Community and Corridor
Return Queens Avenue to Collector Road – 2 Way
•
Allow for southbound left turns onto Dundas Street
•
Focus business recruitment on businesses that can service the
•
community
Develop a buy at home program and community newsletter
Create a Village Core and Concentrate Revitalization Efforts There
Establish goals & policies for Village Core
•
Change zoning applied to Village Core
•
Enhance the incentive package currently offered
•
Develop a convert to rent program
•
Develop a BIA recruitment program
•
Establish a business retention program
Improve physical linkages from public parking facilities
Improve timing of traffic signals
Develop strategic marketing programs
Consider installing gateway features and signage for Village Core
Support the Transition of the Remainder of the Corridor
Establish goals & policies for Village Annex and Area of Transitn.
•
Change zoning for Village Annex and Area of Transition
•
Provide incentives in the Village Annex and Area of Transition
•
Develop a convert to rent program for Annex and Transition
•
Provide an illustrative vision of the transition
Develop Entertainment, Recreation and Arts Opportunities
Retain Aolean Hall
•
Seek out and support controversial arts and entertainment
Display art in vacant window spaces
Organize and promote art-oriented events in the village
Re-establishing Value – A Plan for the Old East Village – Page 35
Do
3rd
•
•
•
•
•
•
•
•
•
•
•
APPENDIX 1
DISTRICTS AND
PHOTOGRAPHIC COMPOSITES OF STREETSCAPES
Corridor Plan:
Districts
Rectory St.
Lyle St.
Hewitt St.
English St.
North Side
South Side
Rectory. St.
Ontario St.
Quebec St.
Ontario St.
North Side
South Side
Ontario St.
Egerton St.
Woodman Ave.
Charlotte St.
Quebec St.
North Side
South Side
Lyle St.
Adelaide St.
Elizabeth St.
Adelaide St.
North Side
South Side
APPENDIX 2
PRELIMINARY ANALYSIS
PREPRED BY PACT IN SEPTEMBER, 2002
Old East Village in London, Ontario
Commercial Corridor Transition and Revitalization Study
Preliminary Analysis in Preparation for the
OPPI Planners Action Team Charette Event
Prepared September, 2002
Contents
PLANNERS ACTION TEAM AND THE OLD EAST VILLAGE IN LONDON, ONTARIO
Background on the Formation of PACT
The Old East Village in London, Ontario
Early Success – PACT as a Catalyst for the BIA to Initiate a Larger Project
Partners and the Role of the PACT
Understanding the Old East Village Prior to the Charette
ANALYSIS OF THE OLD EAST VILLAGE – GAINING A BETTER UNDERSTANDING
1.0
THE SURROUNDING NEIGHBOURHOOD
1.1
Population Characteristics
1.2
Housing
1.3
Economic Considerations
2.0
THE LAY OF THE LAND
2.1
The Commercial Landscape
2.2
Traffic
2.3
Lot configuration
3.0
OWNERSHIP
4.0
REGULATORY CONTEXT
4.1
Official Plan
4.2
Zoning
4.3
Heritage Properties
5.0
EXISTING USES
6.0
ECONOMIC CONTEXT
6.1
Employment
6.2
Taxes
6.3
Business Improvement Area and Existing Incentives
6.4
Private Sector Investment in the Corridor
7.0
VIABILITY OF THE COMMERCIAL STREETSCAPE
7.1
Streetscape Importance
7.2
Building Condition
7.3
Streetscape Viability
8.0
PRELIMINARY FINDINGS AND POSSIBILITIES FOR CONSIDERATION
8.1
Corridor Viability
8.2
West of Rectory Street
8.3
East of Rectory Street
Acknowledgements
On October 27, 2001 the Planners Action Team carried out a detailed walking survey of Dundas
Street between Adelaide Street and Egerton Street (data collection and photography). This work
was supplemented by further survey and photography by PACT member Dave Casemore. The
following members of PACT contributed their time and efforts to the preparation of this report and
its associated maps:
John Fleming – All report writing and map making, GIS project design, survey and photography
Dave Casemore – Extensive survey, photography and preparation of photographic inventory
Michael Hannay – Survey design, survey and photography
Maureen Jones – Survey design, survey and photography
Ron Burnette – Survey and photography
Paul Hicks - Survey and photography
Libby Joplin – Survey and photography; key partner representing Margaret’s Haven
Mike Crechiolo – Survey design
Nancy Pasato – Linkage of photographs to GIS project
June Anne Reid – Data entry
Leona Cunningham – Report layout and organization
Harmony Restaurant – Warmth and good food during the PACT survey day
Others who did not directly contribute to this document, but have been important participants in the
Planners Action Team process to date include:
Cathy Saunders – PACT Secretary and PACT Member
Karen Hammond – PACT Member
Glen Scheels – PACT Member
Gabor Korb – PACT Member
Alex Terranu – PACT Member
Laverne Kirkness – PACT Member
Sarah Merrit – Key partner, BIA manager and leader of the larger Transition and Revitalization
Study
Shelly Happy – Key partner, video photography
Phil Singeris – Key partner, BIA Chair
DATA INACCURACIES AND OMISSIONS: A word of caution is worth noting in relation
to the following analysis and associated maps. While every effort has been made to
accurately survey the area, there are, undoubtedly, mistakes and inaccuracies in the
data and associated mapping. Nothing is more unsettling for a property owner than to
see his/her property inaccurately surveyed. It is hoped, however, that all of those
involved in the study will recognize that the majority of the data is correct and that
despite inherent errors, the mapping serves as a useful tool to reveal trends and
streetscape characteristics. The identification of anecdotal errors should not shake
confidence in the quality and usefulness of the analysis that follows.
Planners Action Team and the Old East Village in London, Ontario
Background on the Formation of PACT
The Planners Action Team (PACT) was formed by the Southwest District of the Ontario
Professional Planners Institute (OPPI) in late 2000. Utilizing a charette event, the goal
of PACT is to create a forum for planning experts to apply their varied talents, in a
volunteer capacity, to help a local community address a problem, challenge or issue. By
doing so, PACT is intended to allow planners to:
1. Work collaboratively, blending the planning profession’s unique skills to help a
community in need of assistance;
2. Raise the public profile of the planning profession within the broader Ontario
community;
3. Work within a context that may be very different from that which some planners
are offered in their current work environment;
4. Work with, network and share ideas with planners from other communities within
the province;
5. Learn about, and from, the charette process.
To take PACT from concept to reality the Southwest District included a budget allocation
for the PACT project in their 2001 budget – an amount that was generously matched by
the provincial Council of OPPI.
Early on, while evaluating potential PACT projects, it became clear that criteria would
need to be developed to guide the project selection process. The following first
principles were developed. The PACT intend to fine-tune and expand these criteria over
time:
i.
Projects will not be selected if they place the PACT in direct competition with, or
in place of, planning consulting services that would otherwise be reasonably
hired.
ii
The project should allow the planning profession to interact with/be directly
involved with a community (understanding that a major goal of the PACT is to
increase the profile of the Planning profession).
iii.
A Public benefit must be demonstrated.
iv.
Projects which require a multi-disciplinary approach to problem-solving will be
given preference. This will showcase the ability of planners to bring multiple
perspectives and disciplines to an issue.
_________________________________________________________________________________
Planners Action Team – A Preliminary Analysis of the Old East Village
Prepared September, 2002
Page 1 of 24
The Old East Village in London, Ontario
The Old East Village project in London, Ontario was seen as meeting the four criteria
listed above. In particular, it was felt that the project would allow planners to showcase
their multi-disciplinary talents and be closely involved with the community.
The Old East Village is well described by the commercial area’s BIA:
The Old East London Village, along with other East London neighbourhoods, has
experienced a downward spiral of commercial, economic and social
disadvantage since the mid-eighties. Over the past ten years the Dundas Street
corridor from Adelaide to Egerton has declined considerably. Investment into the
existing stock of buildings, many of which are heritage structures, has been very
low. Longstanding businesses such as banks, grocery and clothing stores have
recently closed or moved. There is also an ongoing problem with lack of
maintenance of some properties.
Despite substantial physical improvements by the City of London such as road
improvements, sidewalk treatment and an incentive program, the commercial
corridor has continued to degenerate. This has a significant effect not only on the
businesses that continue to operate on the street but also on the area residents.
Furthermore, in the wider London community the area has suffered a diminishing
of its image due to the historical and exaggerated portrayal by the local media as
a place where illegal drug activity, crime and sex trade occur.
This unbalanced imaging is a source of frustration for businesses and residents
alike. It has negatively impacted on the willingness of new businesses to locate
here, on people buying their homes here, and on consumers shopping here.
Despite these challenges, the Old East Village maintains a vibrancy attributable
to it's people, who come from diverse cultures and have diverse lifestyles, skills
and capacities and potentials, and have the willingness to contribute to the area's
revitalization. Unlike other marginalized neighbourhoods, civic engagement and
voluntary association is strong here. Community involvement efforts in the past
few years have been numerous and enduring. The community will is strong.
During the first meeting of PACT, a key representative (Sarah Merritt) from the London
Intercommunity Health Centre (a strong social service provider located in the Old East
Village) spoke to the Committee to support her request for help from the Planners Action
Team. She made special note of the important role that the Dundas Street Commercial
Corridor plays in the psyche of the community. Over time, a once vibrant commercial
strip has deteriorated in physical stature and business vitality.
Health Centre
representatives suggest that the decline of the commercial corridor has taken a
significant toll on the pride of the surrounding neighbourhood. They point to the sense of
community that has been lost and the connection to the neighbourhood’s economy that
is deteriorating.
_________________________________________________________________________________
Planners Action Team – A Preliminary Analysis of the Old East Village
Prepared September, 2002
Page 2 of 24
The questions surrounding the Old East Village far out number their answers. However,
the PACT was united that the Health Centre’s call for help from the Planning Community
would be the substance of a good pilot project. It was clear, however, that the
expectations of the community would need to be carefully managed. There would be no
“silver bullet” solutions and the work of the PACT could only provide some context for
further understanding the problems of the area and perhaps provide the beginnings of
corresponding solutions that would take further work and time.
Early Success - PACT Acts as a Catalyst for the BIA to Initiate a Larger Project
The Business Improvement Area (BIA) relating to the Old East Village area has been in
existence since the mid-1950’s. While it has made many attempts to improve the area, it
has not been rewarded with positive results over the past 10 years. Until 2002, the Old
East Village BIA was relatively informal with no staff. It encompasses only one block of
the larger Old East Village area and generates very little income which makes it
challenging to develop meaningful revitalization programs.
Even before any substantial work was prepared by the PACT, the Team has had a
significant positive influence on the organizational infrastructure of the Old East Village
BIA. In a bold step forward, the PACT partnered with a newly invigorated BIA to play a
key role in an ambitious project “The Old East London Village Commercial Corridor
Transition and Revitalization Study”. Led by the BIA, the Study will include an
integrated commercial, economic and social plan for the commercial corridor. The
PACT has agreed to use their professional planning expertise to provide an analysis,
evaluation and recommendations for the commercial corridor. Meanwhile, the Old East
Village BIA has taken on the larger project and will utilize the PACT results as one
module within the overall study of the corridor.
As a partner, PACT’s commitment to this project helped the BIA to secure substantial
upper-tier government funding to support staff positions and study resources. The BIA is
now deeply embroiled in the revitalization study and has a number of staff on-board to
complete it. What follows is the description of the larger project as described on the Old
East Village BIA’s new web site. Note the role of the PACT as an important module
within this larger study.
“The overall goal of the study is to estimate the viability of the Old East London
Village commercial corridor of Dundas Street between Adelaide and Egerton
Street and to use the study results as the foundation for creating and
implementing an integrated commercial, economic and social development plan
for the adaptive re-use of the corridor.
Goals of the Study
1) Involve local residents in the development of the plan
2) Provide immediate and ongoing support to local businesses and organizations
3) Estimate economic viability of the area
4) Create an economic, social and commercial development plan
_________________________________________________________________________________
Planners Action Team – A Preliminary Analysis of the Old East Village
Prepared September, 2002
Page 3 of 24
Time Lines for the Study
Phase 1 - Building the Foundations
June 2001 – May 2002
Inventory and Community Consultations
• Preparation of corridor inventory.
• Data analysis.
• Hiring of BIA staff.
• Community Consultations.
• Hiring of (C.E.D) Community Economic Development Consultant.
• Decide on evaluation process/factors
June 2002 – August 2002
Study Findings and Creating Networks
• Commercial corridor inventory completed.
• Identifying and forming learning and advisory circles including: retail, corporate,
education, health, area residents, city hall and community at large.
• Inventory of (C.E.D) Community Economic Development needs/opportunities.
• Presentation of focus group findings to participants.
Phase 2 - Creating and Implementing the Plan
August 2002 – September 2002
Creating the CED Plan
• Identify potential (C.E.D) Community Economic Development initiatives.
• Form appropriate partnerships with resource holders.
• Develop priority lists of efforts.
• Develop the implementation plan
October 2002 – November 2002
PACT tour of the area and Public Presentations
• Professional Planners Institute A.G.M.
• Tour of area by planning groups.
• Public presentation of focus groups findings to the Planners Action Team
(PACT).
October 2002 – December 2002
Finalizing and Implementing the Plan
• Planners meet to develop commercial and economic aspects of the plan,
Incorporating (C.E.D) Community Economic Development plan and the focus
group findings.
• Presentation of the plan to appropriate, knowledgeable and interested business
groups, developers and funders to identify sources of skills, resources and
funding to implement the plan.
• Begin broader capitalization search.
• Work with appropriate businesses, governments and developers to begin
implementation of the first phase of the plan.
_________________________________________________________________________________
Planners Action Team – A Preliminary Analysis of the Old East Village
Prepared September, 2002
Page 4 of 24
Partners and the Role of the PACT
In working with the BIA and others, the PACT has become part of a larger partnership to
complete the Commercial Corridor Transition and Revitalization Study as demonstrated
by the following quote from the BIA’s web site:
Old East Village Business Improvement Area
The BIA is the lead organization for the initiative with the responsibility for
ensuring that the study recommendations are implemented. To accomplish this,
they have secured one year funding from Human Resources Development
Canada to open an office and hire staff to support the work of the plan and local
business development
London InterCommunity Health Center
LIHC is located in the study area strip of Dundas Street. It provides health
services to area residents, individuals and groups who experience barriers
accessing health services.
The health center will be helping with the study by involving local area children
and parents in the development of the plan. A video will be created to describe
and evaluate the study as well as market the area.
The Ontario Professional Planners Institute (OPPI), Planners Action Team
PACT consists of members of the Ontario Professional Planners Institute (OPPI)
who have banded together to volunteer their professional experience and advice
to help a community in need. These volunteers consist of a diverse range of
professionals, including municipal planners, private-sector planning consultants,
development analysts and urban design specialists. The team also includes a
number of planning students. The Ontario Professional Planners Institute are the
recognized voice of the province’s planning profession.
(PACT) The OPPI Planners Action Team is conducting an inventory and analysis
of the commercial corridor between Adelaide Street and Egerton Street to give
it’s partners a planning professional’s perspective on the area and possible
opportunities for revitalization and redevelopment. The PACT stresses the fact
that there is no “Silver Bullet” solution to revitalize any such district and that their
role will be to provide a starting point upon which to build
Human Resources Development Canada
HRDC will be funding the Old East London Village Commercial Corridor
Transition and Revitalization Study for one year to help with over head cost
and the setup of the BIA offices. Through the Federal HRDC Job Creation
Partnership program, three positions have been created to help the community
develop and act upon the plan. The objectives of the Job Creation program are to
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assist Employment Insurance eligible individuals with networking opportunities
and skills development to obtain and maintain fulltime employment
As alluded to above, the PACT’s role for this project is to provide:
a.
A better understanding of the commercial corridor from various perspectives (a
major step forward in itself!);
b.
An understanding of the transition that the commercial corridor is undergoing;
c.
An estimation of the viability of the commercial corridor (or the extent of its
viability) and, where appropriate, guidance for adaptive re-use of the corridor
d.
An evaluation of the strengths of the corridor that could be viably built-upon
e.
Possible measures to encourage a productive transition of the corridor (eg.
regulatory framework, design guidance, economic incentives, etc.).
Understanding the Old East Village Prior to the Charette
The PACT quickly realized that it would not be fruitful to have a professional planning
charette relating to the Old East Village without a sound understanding of the corridor
and the surrounding context in advance. To address this, the PACT charette team will
be provided with the following documents:
1. A collection of analytical maps drawn from the GIS inventory prepared by the
PACT;
2. This document which provides a written analysis of the maps and provides some
preliminary ideas about the corridor.
3. A detailed photographic inventory prepared by the PACT; and
4. A summary of the community focus group meetings as prepared by the Old East
Village BIA.
Analysis of the Old East Village – Gaining a Better Understanding
The following analysis is separated into 8 general sections which consider the Old East
Village from the following perspectives:
1.
2.
3.
4.
5.
The Surrounding Neighbourhood
The Lay of the Land
Ownership
Regulatory Context
Existing Uses
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6. Economic Context
7. Viability of the Commercial Streetscape
8. Preliminary Findings and Possibilities for Consideration
A word of caution is worth noting in relation to the following analysis and associated
maps. While every effort has been made to accurately survey the area, there are,
undoubtedly, mistakes and inaccuracies in the data and associated mapping.
Nothing is more unsettling for a property owner than to see his/her property inaccurately
surveyed. It is hoped, however, that all of those involved in the study will recognize that
the majority of the data is correct and that despite inherent errors, the mapping serves
as a useful tool to reveal trends and streetscape characteristics. The identification
of anecdotal errors should not shake confidence in the quality and usefulness of the
analysis that follows.
1.0 The Surrounding Neighbourhood
Maps relating to the socio-economic and demographic character of the surrounding
neighbourhood are based on 1996 Census data. At this time, 2001 Census data is not
available. Some of the observations listed below are based on 1991 and 1996 Census
data relating to East London (a Planning District which encompasses the area – see
attached). The remainder of the comments are based on Section 1 of the accompanying
map package:
1.1 Population Characteristics
The surrounding residential neighbourhood can be characterized as follows:
•
The population of East London is almost 11,000. Population in the East London
district has steadily declined since 1966 - the population today is less than 2/3 of
what it was 35 years ago.
•
Compared to the age composition of the City as a whole, East London has:
o A lower population of children (23% vs. 28% aged 0-19 )
o A higher population of “young” adults (41% vs. 34% aged 20-39)
o A slightly lower population of “mature” adults (25% vs. 28% aged 40 to 64)
o A similar population of seniors (10% vs. 10% aged 65+)
•
The neighbourhood contains a high concentration of new immigrants that have
moved to Canada within the last five years. It appears that the neighbourhood acts
as a landing area for these groups. This is relevant given that new immigrants
frequently have relatively low incomes and often require social support programs as
they “break into” the new culture in Canada (note that this is recognized as a gross
generalization)
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•
There is a high concentration of visible minorities within the surrounding
neighbourhood – although mapping shows that this is not unlike many other regions
of the City
•
The surrounding neighbourhood can be characterized as one which houses a high
concentration of never-married and divorced persons. The number of families in the
area is disproportionately low – similar to the Downtown area west of the study area.
This finding is consistent with the age structure of the area and mapping which
shows low average household sizes in the neighbhouhood.
•
Building on this theme, mapping shows that this area houses a high percentage of
lone parent families. Even more significant is the high concentration of lone parent
families that have no members within the labour force (this means that no members
of the family are employed OR seeking employment and therefore must be relying
upon some form of social assistance). The mapping shows this concentration quite
clearly and differentiates the area from most others in the City.
•
The above fact should be considered in tandem with mapping that shows that a high
percentage of the population in the neighbourhood do more than 60 hours of
childcare per week – an important point when considering the opportunity for lone
parents to enter the labour force.
1.2 Housing
• Compared with City averages, there is a higher percentage of renters in East London
and a lower percentage of owners. Mapping shows a similar concentration of renters
to that in the Downtown area. Renter proportions are even high in the low density
residential neighbourhood which exists north of Dundas Street.
•
Average persons per household are significantly lower in East London than in the
City as a whole – particularly in single and semi-detached housing
•
Within the context of the City, average gross rents within the neighbourhood fall
within the first and second quartile (rents south of Dundas Street are generally lower
than those north of Dundas Street).
•
However, ownership costs (major ownership payments) for properties north of
Dundas Street fall within the second and third quartile, indicating that mortgages may
be high.
•
An analysis of single family detached and semi-detached residential sales during
2000 and 2001 indicates the following:
o Average sales price within a 1 km radius of Rectory and Dundas = $102,000
o Average sales price within a 2 km radius of Rectory and Dundas = $109,000
o Average sales price within a 3 km radius of Rectory and Dundas = $125,000
o Average sales price within the City of London = $156,000
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1.3 Economic Considerations
•
Mapping and planning district data shows a relatively low level of educational
attainment in the area. For example, there is a disproportionately low percentage of
the population that has earned a university degree. 38% of the population have not
earned a secondary school graduation certificate. This compares to 28% in the City
as a whole.
•
Mapping shows that participation rates in the labour force are low in the surrounding
neighbourhood (within the 1st and 2nd quartiles of the City). This is consistent with
the above-mentioned concentration of lone parents in the area who are not in the
labour force.
•
Of those who are in the labour force, unemployment rates are high. Mapping clearly
shows the surrounding neighbourhood as housing one of the highest concentrations
of unemployed.
•
The labour force in the area can be loosely characterized as tending towards blue
collar occupations. Mapping shows that this area has a low concentration of people
working within management occupations (as a representation of white collar
occupations) and a high concentration of people working in manufacturing industries
(as a representation of blue collar occupations). This is consistent with the
educational attainment statistics of those living in the neighbourhood.
•
Mapping shows clearly that average family income in the surrounding neighbourhood
is low (within the 1st and 2nd quartiles of the City).
•
All of these factors are important while considering the economic viability of the
commercial corridor on Dundas Street. When developing policy for this area, and in
subsequent implementation measures (such as business recruitment programs),
these data should help to answer questions such as:
o How extensive of a commercial corridor is viable on Dundas Street?
o How much demand for commercial uses can be expected to be generated
from the surrounding community?
o To what degree should the BIA and commercial uses be catering to and
relying upon the surrounding community vs. potential customers outside of
this area
o What type of goods and services would be demanded by the surrounding
neighbourhood?
2.0 The “Lay of the Land”
Section 2 of the accompanying map set provides an aerial photograph and GIS plot of
the commercial corridor which constitutes the study area. The plot shows property
boundaries and building envelopes. The following section helps to establish a physical
context for this commercial corridor from a number of perspectives – some of which are
more descriptive than analytical.
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2.1 The Commercial Landscape
•
Mapping provides a “glimpse of the retail landscape” in London. It clearly shows that
the Old East London commercial corridor is relatively small within the overall context
of London’s retail hierarchy (this does not diminish its importance as one of London’s
oldest and most identifiable commercial areas and a key part of the East London
community).
•
The corridor is relatively close to the Downtown and acts as a weak extension of the
Downtown’s most important commercial street – Dundas Street. Downtown London,
itself, declined significantly during the 1980’s and 1990’s, but appears to be
experiencing a renaissance as a result of:
o
A strong investment in public projects (new library, new market, new sports
and entertainment complex, new Forks of the Thames plaza, splash pad and
museum, new street lighting, etc. ) all providing leadership for the private
sector to re-invest Downtown.
o
A series of Downtown incentive programs which offer loans and grants and
the waiving of development charges for such things as façade improvement,
interior works involving building code issues, and the creation of new
residential units.
o
A new Main Street program which goes outside of the traditional role that the
Downtown BIA has focused on. Main Street is beginning to develop a
business development and business recruitment program and has been
aggressive in advertising and facilitating Downtown incentive programs
offered by the City.
Downtown London is now seeing significant private sector investment and
improvement on many fronts.
•
The Dundas Street corridor that begins Downtown extends to the City’s eastern limit.
It varies in commercial form ranging from fine-grained and pedestrian oriented to
large scale big boxes.
Area of Dundas Street
Corridor
Downtown and Old East
Village
Form
Uses/Comments
Fine-grained; pedestrianoriented
Between Downtown & Old
East Village
Mix of auto-oriented and
pedestrian-oriented .
Variable lot widths
Mix of specialty retail,
entertainment, personal
service, etc.
Variable uses, including the
above plus some
institutional uses. This area
does not provide a strong
pedestrian connection
between Downtown and
Old East Village (due to
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East of Old East Village to
Clarke Road
Auto-oriented; mix of lot
sizes from plaza’s to car
lots to small commercial
buildings
Regional Shopping
Area/Power Centre at
Clarke Road
Re-developed shopping
center; some new big box
uses; ancillary retail plazas,
etc.
•
physical distance, building
form and uses)
This stretch was developed
when Dundas Street was
the major gateway to
London from the East. An
eclectic mix of retail and
service commercial uses
have developed.
While designated a
Regional Shopping Centre,
this node has never
developed to this planned
potential and functionally
acts as an “over-sized”
community center. A big
box Canadian Tire store
was developed in the past 3
years.
In general, London is well serviced (some would say over-serviced) with retail uses
and like most communities in Ontario has a significant supply of suburban
commercial space which has “hurt” historically significant and vital commercial nodes
in central city areas.
2.2 Traffic
•
During the 1970’s the BIA and City of London created an “s” curve in the stretch of
Dundas Street between Adealide and Elizabeth Street. This part of the street was
originally closed to all automobile traffic to create an outdoor pedestrian mall (the
intent was to replicate the pedestrian environment of newly developing suburban
shopping centers that were having a major impact on business in the Old East
Village). The business community quickly realized that this strategy failed and
automobile traffic was re-introduced. The “s” curve did not allow for on-street parking
and approximately three years ago the City re-constructed this stretch of Dundas
Street to remove the “s” curve and re-introduce on-street parking.
•
Mapping shows the average annual daily two-way automobile traffic in the
surrounding area. High traffic counts clearly show up on Dundas Street east of
Highbury Avenue (in fact, some of the highest traffic volumes in the City). Moving
west, traffic volumes consistently decline and take a sharp drop west of Ontario.
Clearly, the Old East Village study area is much less automobile-dominated than the
stretch of Dundas east of the Village.
•
A key point is that automobile traffic is generally higher within the study area EAST
OF RECTORY STREET. West of Rectory, traffic volumes are lower and might offer
greater potential for developing a high quality pedestrian environment. This will be
supported later in this document given other considerations of pedestrian amenity.
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•
Mapping shows that a bus route which connects the Downtown to the City’s east-end
extends through the Old East Village, giving good access to the Village from
Downtown London. Unlike the Downtown, the Village does not serve as a transit
hub.
•
Within the study area, there are six traffic signals. This can be seen as a positive
feature to slow down traffic and enhance the pedestrian environment.
•
Mapping clearly shows that street lights have been staggered along Dundas Street
between Adelaide and Elizabeth Street as a result of the recent re-build. These new
street lights provide superior lighting to their predecessors. A similar staggering
exists east of Rectory Street.
•
There is a significant lack of street trees within the study area. Clearly, the block
between Adelaide and Elizabeth is an exception whereby street trees were planted
during the recent re-build of Dundas Street.
2.3 Lot Configuration
•
Rectory Street provides a good separating line for this analysis of lot depths and lot
areas. West of Rectory, lots are generally not as deep as they are east of Rectory
(although there is variability).
•
Even more striking, and significant, is the fact that lot areas west of Rectory (mostly
west of English) are much smaller in lot area than they are east of Rectory. This has
significance because:
o
o
o
o
The small lots west of Rectory would be very difficult to assemble for a
redevelopment project;
Conversely, the large lots east of Rectory provide more opportunity for
consolidation and redevelopment;
The small lots west of Rectory are more conducive to fine-grained retail uses
that are oriented to pedestrians
Conversely, the large lots east of Rectory allow for driveways and parking
areas that are more conducive to automobile-oriented uses. Large lots such
as this do not generally support a good pedestrian commercial context.
3.0 Ownership
•
Mapping shows that the properties in the Old East Village are primarily owned by
local residents. Less than ten properties are owned by individuals who live outside
of the London Census Metropolitan Area. This bodes well for revitalization initiatives
that may require the interest, attention and involvement of property owners.
•
A relatively large number of properties on Dundas Street in the Old East Village are
owned by property owners who also own another property in the Village on Dundas
Street. This is important because:
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o
o
o
•
It presents opportunities for land consolidation which may be required for
certain redevelopment projects;
It heightens the vested interest that certain owners may have in the
revitalization of the corridor; and
It may allow for the coordination of various revitalization programs and
present a “couple of champions” who can make a real impact on the
streetscape by improving their properties.
The City of London owns a number of properties in the area – most of which are
being used for parking. The Western Fair (jointly owned), the London Police
Department and the Provincial Offences Office are three City-owned institutional
uses on the corridor. It is worth considering the contribution that the City-owned
properties are currently having to the area and what potential improvements could be
made to help in the revitalization effort.
4.0 Regulatory Context
4.1 Official Plan
•
The Official Plan applies a Business District Commercial (BDC) designation to the
Old East Village for properties fronting along Dundas Street (with the exception of
the Western Fairgrounds which are designated Community Facility).
•
This BDC designation is described as follows in the Official Plan:
FUNCTION
“The Business District designation is applied to long established pedestrian-oriented
shopping areas in the older parts of the City. These areas typically consist of mostly
small, separately-owned and managed commercial properties that meet the frequent
shopping and service needs of nearby residents or provide specialty shopping for
customers from a much larger area” [4.4.1(ii)]
PERMITTED USES
“Permitted uses in Business Districts include small-scale retail uses; furniture and
home furnishings stores; home improvement stores; hardware stores; food stores;
convenience commercial uses; personal and business services; pharmacies;
restaurants; commercial recreation establishments; financial institutions; funeral
homes; automotive services; small-scale offices; correctional and supervised
residences; institutional uses; animal hospitals; residential uses (including secondary
uses) and units created through the conversion of existing buildings, or through the
development of mixed-use buildings. Zoning on individual sites may not allow the full
range of permitted uses. New uses in Business Districts, such as fast food
restaurants, taverns, and automotive uses, which may be potentially disruptive to
adjacent residential areas, shall require a re-zoning” [ 4.4.2(i)].
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SCALE
“Redevelopment or infilling of commercial uses within a Business District that forms a
continuous, pedestrian-oriented shopping area shall maintain a setback and
storefront orientation that is consistent with adjacent uses” [4.4.4]
FORM
“Business Districts are pedestrian-oriented and the Zoning By-law may allow
structures to be developed with zero front and side yards to promote a pedestrian
streetscape” [4.4.5].
•
In addition to the general BDC policies, the Official Plan sets out a specific policy
relating to the Old East Village under Section 4.4.8:
“The Business District extending along Dundas Street East, between Adealide Street
and Egerton Street, shall be developed as a mixed-use, pedestrian-oriented
commercial area. Permitted uses in addition to those outlined in Policy 4.4.2 include
a full-line department store and a community theatre use.” [4.4.8(ii)]
•
While there has been no move to prepare a Community Improvement Plan for this
area, Figure 14-1 of the Official Plan shows the Old East Village as an eligible
Commercial Community Improvement Area.
•
The surrounding area to the north is designated for low density residential uses. The
surrounding areas to the south is designated for regional facility uses (Western Fair)
and medium density residential uses.
4.2 Zoning
•
Mapping shows that there are two primary zoning blocks applied to the Old East
Village properties fronting Dundas Street: one east of English Street and the other
west of English Street
•
Both of these zoning blocks allow Business District Commercial uses which include a
wide variety of retail, service commercial, medical-dental, small-scale office, and
other complimentary uses. In addition, the BDC (2) zone which is applied to both
these zoning blocks allows for group homes and ground floor residential uses only
on the rear portion of buildings. The zone PROHIBITS accessory parking lots on
Dundas Street between Adelaide Street and Rectory Street.
•
The current zoning on the block west of Rectory Street combines another zone – the
Office Residential (OR:D250:H46) Zone – with the BDC (2) zone. In doing so, it
allows for office-apartment mixed use buildings with a density of 250 units/ha and a
height of 46 metres (approximately 15 storeys). This appears to be completely out of
character with the intent of maintaining a pedestrian-oriented and contiguous
streetscape that is attractive to pedestrian shoppers.
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•
In many ways, it would be more appropriate to move the OR: D250:H46 zone to the
lands east of Rectory and remove them from the lands west of Rectory (this will be
explained in more detail later in this document).
4.3 Heritage Properties
•
Mapping shows that there are a large number of heritage listed properties along
Dundas Street in the Old East Village. Many of these listed properties (listing
indicates that they are on the City’s heritage inventory which denotes the fact that
they are significant from an architectural or heritage perspective) are of a high quality
(Priority 1). For example, six separate buildings are listed as Priority 1 along the
north side of Dundas at the corner of Elizabeth and Dundas.
•
Currently, three properties are actually heritage designated and protected under Part
IV of the Ontario Heritage Act. These include the recently restored Palace Theatre,
a residential property (869 Dundas) and a commercial property (778 Dundas). The
Aolean Hall, formerly the London East Town Hall (when London East was a separate
municipality), is currently being reviewed for potential heritage designation by the
London Advisory Committee on Heritage.
•
As shown in subsequent maps, there is a wealth of heritage resources in the Old
East Village and a heritage conservation district may be appropriate to:
o Strengthen the commercial heritage theme (eg. Bayfield);
o Bring City-wide recognition to the unique heritage resource in this area;
o Protect the streetscape, and its commercial viability, from individual
demolitions that could affect everyone;
o Qualify property owners for current and potential future heritage incentives.
5.0 Existing Uses
•
Mapping shows the general land use pattern in the Old East Village (based on
assessment land use codes). There is an intact residential community to the north of
the Dundas corridor – one which has not been infringed upon by commercial uses.
•
The corridor, itself, is mostly commercial, although there are some exclusively
residential buildings (most of which are east of Rectory).
•
There are some industrial uses south of the corridor and a large community facility
use (Western Fair Raceway – which includes the annual Western Fair, events
buildings, a racetrack and slots)
•
Only four properties fronting Dundas Street are vacant commercial land.
•
A survey prepared by OPPI’s PACT, in conjunction with Vernon’s Directory, was
used to consider land use at a more detailed level. The mapping shows the
following:
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•
There has been a significant turnover in tenancy since 1996. The accompanying
maps show that approximately 1/3 of the properties on Dundas Street have had a
change in tenancy and a change in commercial category since 1996 – most of these
changes have occurred west of Rectory. This is indicative of an unstable
commercial area whereby commercial uses are finding it difficult to sustain
themselves over time. This is also indicative of a commercial area that is
transitioning (1/3 turnover in six years can be considered a relatively quick
transformation).
•
There is a significant level of ground floor residential use. The accompanying maps
highlight those buildings where one or more ground floor units are being used for
residential purposes. Most of these uses are east of English Street – although
residential uses do exist west of English – an undesirable feature within a
pedestrian-oriented commercial area.
•
There are a significant number of restaurants, bars and entertainment facilities along
Dundas Street – most of which are west of Rectory. While this is generally positive,
it should be considered within the following context:
•
o
There were once many more restaurants along the Dundas corridor; many
have closed;
o
Some of the taverns appear to have a negative influence on the corridor
rather than a positive influence. Rather than improving the perception of
safety by keeping activity on the street in the evening, they tend to catalyze
late night conflicts that sometimes turn violent.
Mapping shows that there is a relatively strong cluster of retail and personal service
uses west of Rectory Street (see later analysis for streetscape continuity issues).
While it is clear that the quality and character of these uses is not positive in all
cases, there appears to be a “skeleton” of commercial uses that can be built upon to
develop a viable commercial streetscape west of Rectory.
6.0 Economic Context
6.1 Employment
• Mapping shows 1996 Place of Work Census data (number of employees working
within each enumeration area). This clearly shows the East London area as an
employment node (more-so south of Dundas than north of Dundas).
•
The three Census enumeration areas that front Dundas Street (but also include
properties off of Dundas Street) show that approximately 4,000 people work along
and close to the corridor. Within a 1km radius of Rectory and Dundas, approximately
10,000 people are employed. Within a 2 km radius, 14,000 people are employed.
•
Of the 4,000 employees working in the immediate area:
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o
o
o
o
o
More than 1,200 work in manufacturing (including food processing such as
Kellogg’s/McCormicks which are just outside the eastern edge of the study
area)
Almost 600 work within the finance and insurance industry
Almost 450 work within the retail trade industries
Over 300 work in the local government, education, health and social services
industry
Other significant industries include:
§ Transportation 185
§ Business Services 180
§ Wholesale Trade 150
§ Construction 80
6.2 Taxes
•
The tax data maps were prepared for this analysis by the City of London. However,
this information is confidential and cannot be displayed. The following provides
some useful points for consideration:
o Many of the smaller properties on the corridor have higher assessed values
per square foot than the larger properties. Accordingly their taxes/sq.ft. are
higher which should be considered in any business recruitment exercise
(where rents must yield sufficient revenues to cover CAM charges).
o Many properties in this area pay taxes of approximately $2/sq.ft.; there are
even a large number that pay less than $1/sq.ft. This is very low compared
with properties within other commercial districts such as Downtown London
where typical tax values are much higher per sq.ft.
6.3 Business Improvement Area and Existing Incentives
•
Mapping shows the extent of the Business Improvement Area which was originally
established in the mid-1950’s. Clearly, the geographic scope of the BIA is limited
and it would be preferable if the BIA boundaries extended eastward (probably to
Rectory Street). However, under provincial legislation, a bid to extend the BIA’s
boundaries would require collective agreement to do so (through a formal voting
process). Given extreme difficulties that this commercial area is experiencing it is
questionable whether property owners would agree to extending the boundaries
which would result in the application of a BIA levy to those properties added to the
boundary. Even more significant is the fact that the existing BIA would functionally
be dissolved prior to any attempt to form a new one and would be in jeopardy of not
re-forming if the bid for an extended boundary failed.
•
The existing BIA has had some significant recent successes. For example:
• It has been successful in lobbying the City to make improvements to Dundas
Street between Adelaide and Elizabeth (removed “s” curve; added on-street
parking; added sidewalk treatements such as interlocking brick, new street lights
with banners and flower hangers, new street furniture);
•
It has recently partnered with the City to spearhead a revitalization plan which
resulted in newly designed public parking facilities (including improved signage);
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•
It has been successful in gaining two City-funded incentive programs: the façade
restoration loan program and the waiving of development charges
•
The Façade Restoration Loan Program provides loans for to property owners of up
to $25,000 or half of the value of any façade restoration work (whichever is less); the
loan is interest free and can be paid back over 10 years
•
The City’s 1999 Development Charges By-law exempts all new residential
development in the Old East Village BIA from development charges. It is worth
noting that new residential units in existing buildings are exempt from development
charges throughout the City (ie. restoration projects do not need the special
exemption offered for this area) This incentive is targeted to new development or redevelopment. Given that the BIA represents an area which would be more desirable
to restore than to re-develop (between Elizabeth and Adelaide), this incentive may
not be appropriate.
•
It is important to note that these incentive programs are only currently applicable, by
by-law, to the BIA as shown in the accompanying maps and do not apply to the
remainder of the study area
6.4 Private Sector Investment in the Corridor
•
While the above incentive programs are available, only one property has taken
advantage of the Façade Restoration Loan Program and no property owners have
utilized the waiving of development charges program. This is in stark contrast to the
Downtown – the only other commercial area to which these incentives apply – which
has seen substantial take-up of these programs.
•
Mapping shows that there has been an extremely low level of private sector
investment in the study area over the past 10 years. Within this 10 year period, only
a few properties have received building permits for work that exceeds $70,000. For
a commercial corridor of this age and significance, this is a clear demonstration of
under-investment by the private sector. This lack of investment likely reflects a lack
of expected return on investment by property owners in the area (i.e. property
owners ask why they should improve their building if it will likely still remain vacant or
attract an extremely low rent generator given the economic context of the Dundas
corridor).
•
Mapping shows where demolition permits have been issued to date. Some of these
demolitions only relate to a portion of the building which is identified. Despite the
dire economic condition of the Old East London Village, demolitions have not yet
taken hold to threaten the viability of the corridor. However, given much of the
analysis which follows on the viability of the commercial streetscape and the
condition of the buildings in the area, this trend could change.
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7.0 Viability of the Commercial Streetscape
7.1 Streetscape Importance
•
It should be clearly understood that the heritage building streetscape (particularly
between Adealide and Rectory) appears to be the greatest asset available to the Old
East Village commercial corridor and if this resource is lost, the future viability of the
corridor may be lost along with it.
•
Mapping shows the age of buildings in the study area. This is clearly an historic
commercial corridor. Mapping shows the following:
o
Many of the buildings on the corridor (about 1/3) were constructed prior
to 1900. The best cluster of these very early buildings is west of
Elizabeth Street.
o
There is an excellent streetscape of buildings constructed before 1925 on
the north side of Dundas Street, west of Rectory. These buildings are
architecturally diverse and offer great potential for an interesting, unique,
authentic and very compact heritage streetscape. There are many more
buildings of this vintage on the south side of Dundas Street, west of
Rectory, although there are more interruptions by newer buildings and
more gaps in the built streetscape.
o
East of Rectory there are also many historic buildings. It is clear,
however, that this stretch of the corridor is less compact and intense as a
heritage streetscape. There are substantial gaps in the built form and a
number of new buildings where re-development has occurred on large
blocks (eg. The City’s Provincial Offences Administration Building).
•
Building on the above analysis, mapping shows the judged importance of each
building to the streetscape as assessed by those members of the PACT that
surveyed the corridor. The most significant cluster of important buildings, from a
streetscape continuity perspective, is clearly evident west of Rectory Street on the
north side of Dundas Street. There are also many key buildings on the south side of
Dundas west of Rectory.
•
In summary, the viability of the Dundas corridor as a pedestrian
shopping/entertainment area is likely tied closely to the future of the commercial
streetscape west of Rectory. This comment is not to diminish the importance of the
streetscape east of Rectory which has many key buildings, but is more spread out
and less viable for pedestrian usage.
7.2 Building Condition
• The portion of the Dundas Streetscape which appears to be most critical for the
success of the entire corridor (that being the portion west of Rectory) appears to be
in the worst state of repair. Mapping shows the following:
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•
Most of the building facades west of Rectory, on the north side of Dundas
Street, are in Fair or Poor condition. There are very few that are in good or
excellent condition according to the opinion of those planners who surveyed
these properties. This is troubling given the importance of this streetscape.
This has a significant and direct bearing on the quality of the pedestrian
environment offered by the corridor. However, this is consistent with the
above analysis of investment into the area.
•
Many of the building facades on the south side of Dundas Street, west of
Rectory, are in good or excellent condition. This stands in contrast to
buildings across the street on the same stretch of Dundas. There are,
however, several buildings south of Dundas that are also in fair condition.
•
Building facades east of Rectory tend to be in better condition than those
west of Rectory Street. Many are in good or excellent condition. This may
have some bearing on the likelihood of redevelopment projects in this area
(ie. assembly costs would be higher than they would be if these properties
were deteriorating).
•
Mapping tells a similar story for the judged condition of the storefront level and the
upper storeys of the facades along the Dundas Corridor. Again, relating to the
quality of the pedestrian environment, the storefront level condition of many buildings
west of rectory is judged as fair to poor – a bad sign for this important streetscape
•
The window display (merchandise/service display) offered to the streetscape is
extremely important from a pedestrian streetscape perspective. Once again, the
properties west of Rectory, on the north side of Dundas Street show up as the worst
in the corridor.
7.3 Streetscape Viability
• Mapping shows ground floor vacancies in 2002 (source is Vernon’s Directory).
Buildings are shown which have at-least one vacant space on their ground floor
(fronting Dundas Street). Many of the properties which are highlighted include more
than one commercial retail unit that is vacant (thereby having a more dramatic
impact to the streetscape than may be visible from the mapping). The following is
noteworthy:
•
o
There are a significant number of vacant spaces along the corridor (about
20% of the buildings in the corridor have some vacant space)
o
Much of this vacancy is west of Rectory street
Mapping also shows ground floor vacancies that existed in 1996 (source is Vernon’s
Directory). It is clear that there are more vacancies in 2002 than there were in 1996,
However, it is also clear that the Dundas Street corridor had vacancy problems in
1996 – indicating that the vacancy difficulties associated with this area have been in
existence for a relatively long term.
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•
Building on this point, mapping shows that there are a number of buildings which
contained vacancies in both 1996 and 2002. However, interestingly, this is not as
prevalent as one may expect. While the corridor has sustained a high total vacancy
rate over the longer term (last 6 years), it appears as though vacancy has shifted to
various building over this period (ie. many 1996 vacancies have filled while other
buildings have become vacant during the same period). While the high vacancy
level for the area can only be seen as a negative point, the fact that many vacancies
have been filled is positive.
•
The above point is emphasized by mapping which shows vacancies that have been
filled since 1996. It is noteworthy that most of the buildings which have been filled
are relatively small.
•
Mapping shows that new vacancies that have arisen since 1996 are more numerous
than those that were filled and relate, in many cases, to large buildings. This has the
impact of leaving significant physical gaps in the commercial streetscape – a
negative influence on the pedestrian commercial experience.
•
There are a significant number of non-commercial uses along the Corridor (eg. social
services providers, offices, residential uses, etc.). Mapping shows “interruptions” in
the commercial streetscape by these non-commercial uses in both 1996 and 2002.
It is important to understand that this has a direct bearing on the viability of a corridor
as a pedestrian commercial streetscape. Findings are as follows:
•
•
It appears as though there is insufficient commercial streetscape continuity
east of Rectory to support a pedestrian commercial corridor. There are too
many non-commercial uses and buildings and, together with the fact that lots
are wider and buildings are more spread out east of Rectory, this stretch of
the corridor is not prime as a sustainable pedestrian commercial area.
•
Conversely, lands west of Rectory show good promise for a pedestrian
commercial corridor. However, it should be clear that there are a number of
interruptions in this pedestrian streetscape – a fact that should be recognized
in any recruitment program that may be introduced. While ground floor
residential uses, social services and office uses might fill space, further
introduction of these uses will have a negative impact on the pedestrian
shopping environment.
•
While there has been some shifting between locations, there have not been
major changes in the number of non-commercial uses along the corridor
since 1996.
One last map provides a rather ominous view of streetscape continuity. It shows
interruptions in the commercial streetscape including vacancies as well as noncommercial uses. With the exception of the block between Adelaide and Elizabeth
Street., north of Dundas Street, there are no significant clusters of commercial uses
that offer a compact and continuous commercial streetscape that would be attractive
to pedestrians. East of Rectory offers almost no commercial uses. West of Rectory
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the commercial streetscape needs to be bolstered with new commercial uses that
will offer variety and interest for pedestrian consumers.
8.0 Preliminary Findings and Possibilities for Consideration
This document is intended to provide an understanding of the commercial corridor for
PACT charette participants prior to the charette event itself. It is important that the
participants are not hamstrung by specific directions or policies and that they are given a
“fresh slate” so that they may think about the corridor’s problems and potential solutions
creatively.
However, it is also worthwhile providing some focused findings of the PACT analysis to
date and present some possibilities for consideration prior to the charette so that
participants can weigh these possibilities, accept them, refute them or add to them. The
following section outlines in a very preliminary way, the findings of this analysis and
some possibilities for consideration by the PACT charette team.
8.1 Corridor Viability
•
Given the Socio-economic and demographic character of the surrounding
neighbourhood, it is likely that disposable income from this neighbourhood is limited.
•
It will be important to attract consumers from outside of the surrounding
neighbourhood and will likely be prudent to focus revitalization efforts on a portion of
the corridor rather than expecting the entire corridor to return as a strong commercial
streetscape.
•
Rectory Street is a good dividing line to describe the streetscape and to guide the
development of policy and programs.
8.2 West of Rectory Street
•
West of Rectory is an excellent heritage streetscape that is both compact and
contiguous from a built-form perspective. An interrupted, but noticeable, cluster of
retail and service commercial uses provide the bones of what was once, and what
could be again, a vital commercial corridor (including specialty retail, service
commercial, entertainment, culture and arts uses).
•
However, the current building stock west of Rectory is deteriorating. Facades are
being neglected and beginning to decay. Investment and maintenance is extremely
low. Furthermore, pedestrian level storefronts are also decaying and window
displays, awnings and signage are very poor. A cursory review of building interiors
suggests that they also require investment and are in poor shape.
•
To address these issues the following are some actions worth consideration. The
proposed incentives encourage the improvement of the existing building stock, rather
than encouraging new large-scale projects and re-development:
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•
Change the zoning applying to these lands to remove the Office Residential (OR)
zone which would allow for large scale office and residential development
fronting Dundas Street (which would destroy the commercial pedestrian
environment).
•
Introduce a Heritage Conservation District for the streetscape between Adelaide
and Rectory. Use this Conservation District status to market the area, protect the
integrity and continuity of the heritage stock and raise awareness and promote
the value of the heritage theme for the area (perhaps re-name the area the “Old
East Heritage Village”.
•
Expand the current Façade Restoration Loan Program (funded by the City) to
cover all of the properties between Adelaide and Rectory Street.
•
Introduce a new awning and sign grant program which complements the Façade
Restoration Loan Program. Perhaps a partnership could be struck and
organized with sign or awning companies to allow for “bulk” discounts where
more than one property installs a new sign or awning.
•
Introduce the Upgrade to Building Code Loan program which was recently
established for Downtown properties. This program would loan up to $50,000 or
½of the value of interior works that relate to Building Code requirements.
•
Retain the East London BIA, but establish a new Old East Heritage Village Main
Street program. This should support at-least one full time staff person who would
be responsible for such things as:
• strategic business recruitment (including establishing vacant space detailed
databases, information packages for potential investors, developing an
investment web site, etc.);
• business development; educating land owners about incentive programs and
promoting take-up of these programs to improve the existing building stock;
• educating property owners about best practices for building improvement and
business development;
• encouraging property owners to improve their store fronts, signage, and
window displays;
• facilitating the heritage conservation district process (together with the City’s
Heritage Planner); and
• developing creative events to raise the profile and improve the perception of
the corridor.
This Main Street program could possibly be funded by the BIA, the City of
London, and other partners who have a vested interest in the revitalization of the
corridor.
•
Request that the 2004 Development Charges By-law waive development
charges for new residential development on Dundas Street, west of Rectory, only
when such development retains the existing building which currently fronts
Dundas Street.
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•
Request that the Tax Rebate Program currently applied to for Downtown
improvement projects be applied to the area west of Rectory, but only where the
existing building fronting Dundas Street is retained.
8.3 East of Rectory
•
Along Dundas Street east of Rectory, to Egerton Street, there are several key
heritage buildings. However, there are long stretches of various land uses which do
not support a high quality pedestrian streetscape. Recognizing that there is likely
insufficient demand to support a strong corridor both east and west of Rectory, it may
be appropriate to encourage a transition to a blend of existing and other new uses. It
is noteworthy that this portion of Dundas receives considerably higher traffic flows
than that west of Rectory.
•
To support this transition the following actions may be appropriate for lands east of
Rectory:
• This portion of the corridor could be re-zoned to allow for some form of redevelopment (perhaps a blend of medium density housing and auto-oriented
commercial uses);
• The 2004 Development Charges By-law might exempt development charges for
residential development on these lands;
• The Tax Rebate Program, currently applied to Downtown improvement projects,
could be implemented on these lands.
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