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Cafés in Downtown Halifax, Argyle Street
Reclaiming Streets for People: Sidewalk
Cafés in Downtown Halifax, Argyle Street
Table of Contents
Additional Information
Halifax
Summary
Organization
Halifax Regional Municipality (HRM)
Status
Sidewalk cafés on Argyle Street and in downtown Halifax
are increasing and thriving.
Overview
In 1995, the Halifax community supported the first sidewalk
cafés in downtown Halifax, which were launched on Argyle
Street. More then ten years later sidewalk cafés continue to
thrive on Argyle Street and in the rest of downtown Halifax,
contributing to the success of vibrant pedestrian oriented
streets.
Based on two studies and public consultation focusing on
Argyle Street’s sidewalk cafés design layout and
design guidelines, HRM implemented a boardwalk café for
Argyle St. One major challenge of the current boardwalk sidewalk
café design is that it poses accessibility issues. An
alternate sidewalk café design, such as the satellite
café design offers pedestrians direct linear paths of
movement rather then the zigzags that boardwalks create.
Business owners lease portions of sidewalks, and incur related
expenses and offer creative designs to the operation of boardwalk
cafés on Argyle Street. The HRM recognizes the importance of
sharing financial and creative responsibility and providing a
comprehensive sidewalk café application process and design
guidelines to business owners.
Contact
Marion Currie, Capital District Project Coordinator
Halifax Regional Municipality
Telephone: 902-490-6735
E-mail: curriem@halifax.ca
Stephanie Sodero, TRAX Coordinator
Sustainable Transportation Initiatives in HRM
Ecology Action Centre
Telephone: 902-429-0924
E-mail: trax@ecologyaction.ca
Resources
Halifax Regional Municipality www.halifax.ca
Ecology Action Centre www.ecologyaction.ca
Community context
The culture of ‘al fresco’ dining and drinking
contributes to the success of many streets and cities. Sidewalk
cafés offer front row seats to the urban theatre of life.
Outdoor cafés are an enjoyable component of the streetscape
that engage people in street activities at a pedestrian scale.
Streets with sidewalk cafés are destination streets with
identity, instead of simply being traffic thoroughfares.
Many people in the Halifax community recognize that sidewalk
cafés contribute to economic success and provide vibrant
pedestrian environments. Sidewalk cafés operate in front of
three businesses from May 1 to October 31 annually. Argyle Street
is a three block one-way street that serves as a major pedestrian
corridor in the downtown core. Argyle Street is used for a
diversity of purposes including: cafés, restaurants, shops,
upper level residential, hotel, theatre, newspaper publishing,
tourist information centre, non-government organizations as well
as City Hall, a public space called the Grande Parade and the
World Trade and Convention Centre. The unique mixed-use nature of
the street provides an ideal environment for outdoor
cafés.
Argyle St.
Economy Shoe Shop Boardwalk Sidewalk Café
Policy context
For the G-7 Conference in 1995, the HRM approved the
transformation of an empty space located across the Grand Parade
into an outdoor International Café. The success of the
café sparked great interest in establishing sidewalk
cafés in downtown Halifax. Also in 1995 HRM approved a pilot
sidewalk café for one restaurant on Argyle Street.
Subsequently, other restaurants in the area opened sidewalk
cafés.
In May 1997 HRM proposed an Interim Sidewalk Café Policy
to provide greater management of the increasing number of
sidewalk cafés. This Interim Policy replaced four separate
by-laws, streamlining the process for using the street
right-of-ways for sidewalk cafés.
In 1998, the Interim Policy was adopted as the HRM Sidewalk
Café Policy. Staff cautioned Council that this policy was
only preliminary, however it remains as the sidewalk café
policy for downtown Halifax.
Rationale and Objectives
The potential opportunities for sidewalk cafés were
quickly recognized by both the HRM and business owners. These
cafés contribute to business development and the local
economy, attract tourist and engage the community all at the
pedestrian scale for downtown Halifax.
The HRM’s guiding principles for the Sidewalk Café
Policy included:
- Promoting sidewalk cafés aimed at encouraging:
vitality, pedestrian activity, pedestrian scale, traffic
movement and safety standards;
- Encouraging participation of Business Improvement Districts
and property owners;
- Creating consistent by-laws for sidewalk cafés;
- Standardizing application process and
- Upholding quality design criteria established by
consultation process.
Actions
Conducting Argyle Street Design Study.
In 1997 prior to the development of the Interim Policy the Argyle
Street Design Study was conducted by the HRM, the Downtown
Halifax Business Commission (DHBC) and a consulting team. The
study’s Steering Committee consisted of three DHBC members,
two HRM staff and two landscape architects from the consulting
team.
The goal of the study was to evaluate and recommend a street
re-design to accommodate the increasing demand for sidewalk
cafés on Argyle Street. The study proposed widening
sidewalks to allow for sidewalk cafés and the addition of
street furniture such as: lighting, benches, refuse bins, trees
and flora but permanent sidewalk widening has not been
implemented as of yet. Argyle Street could also benefit from
street improvements such as public seating and rest areas,
however HRM is currently satisfied with the amenities and
aesthetics on Argyle Street. Transportation and Public Works
replaced sidewalks on Argyle Street in 2005, which focused on
safety issues rather than aesthetics.
Initiating sidewalk cafés.
The first sidewalk cafés on Argyle Street were also sparked
by the vision and initiative of one business owner on Argyle
Street. This business championed creative standards for design
and construction of sidewalk cafés. The business did not
have a sidewalk café permit from the HRM at that time,
however the success of that businesses sidewalk café
demonstrated the significant contribution that sidewalk
cafés offer the downtown.
Providing public consultation.
The Argyle Street. Design Study included a public consultation
process. Twenty eight businesses and property owners from Argyle
Street participated in the consultation. The discussions brought
forth ideas and concerns regarding the design proposal, which
were reviewed by the Argyle Street Design Study Steering
Committee. The study was then presented to Council.
Developing sidewalk café design layout for Argyle
Street.
The Argyle Street Design Study proposed a boardwalk café
layout as the provisional sidewalk café design for the 1997
season, which continues to serve as the current sidewalk
café design.
General
Boardwalk Café Design
Graphic provided by
Ekistics Planning and Design
Boardwalk cafés provide outdoor seating next to the
café, which extends onto the sidewalk and directs pedestrian
flow onto a temporary boardwalk built in the street’s
parking lane. Planters located at the ends of the boardwalk
provide separation between pedestrians and parked vehicles. A
consistent sidewalk café design layout was recommended for
the entire length of Argyle Street.
Designing layout of Argyle Street.
Argyle Street is a one-way street with two lane vehicle traffic
totaling approximately 6m in width. Sidewalks measure a minimum
of 2.13m and the parking and/or loading lanes are a minimum of
1.82m in width. The temporary boardwalks used when sidewalk
cafés are in operation measure approximately 2.10m in
width.
Argyle
Street and corner of Blowers Street
Sharing ownership of and financing public right-of-way
with sidewalk cafés.
The HRM provides opportunity for businesses to share ownership of
spaces where businesses operate a sidewalk café with the
HRM. HRM encourages businesses to creatively design the
boardwalks while ensuring accessible pedestrian movement.
Businesses lease a portion of the sidewalk where the sidewalk
café is located from the HRM for $2.50 per square foot of
seating area. In addition, businesses pay a $100 permit fee per
season and incur a $250 fee for every metered parking spot
replaced by boardwalk. Seasonal fees to install and remove
sidewalk cafés and boardwalks vary depending on the
café designs. Businesses are responsible for the finances,
construction and maintenance of the boardwalk public
right-of-way.
Results
Increasing pedestrian traffic volumes.
A 2004 Downtown Pedestrian Study shows that pedestrian traffic
volumes in the downtown core increased approximately 29% annually
since 1995. On Argyle Street the average hourly pedestrian counts
in 2004 were 1,389, compared to the 710 in 1995. Sidewalk
cafés as well as other factors such as increased downtown
business contributed to the doubling of pedestrian activity in
the downtown and on Argyle Street.
2004
Day-Long Counts – Average Hourly Estimates for Argyle St.
between Blowers and Sackville
Table provided by HRM
and DHBC
Improving quality of life in downtown
Halifax.
The sidewalk cafés on Argyle Street contribute positively to
the street’s overall character. The popularity of the
sidewalk cafés attracts visitors and locals, as well as
increases pedestrian activity and urban vitality. Vehicles are
restricted from portions of Argyle Street during special events
and the street is opened up for pedestrians. Due to the 2006 Juno
Awards, sidewalk cafés will open earlier in the season
(March 27 rather then May 1).
Argyle
Street Opa and Argyle Street Bar & Grill Boardwalk Sidewalk
Cafés.
Receiving recognition.
The success of the Argyle Street sidewalk cafés is
recognized annually by The Coast, a local weekly newspaper in the
best outdoor/seating patio category. As well, tourism
publications list Argyle Street as an attraction for visitors.
Argyle Street is a vibrant and unique destination in Halifax,
attracting locals and tourists alike. The HRM’s Regional
Plan and Cultural Plan both support sidewalk cafés in
downtown Halifax.
Concerning accessibility
issues.
Access for varying mobility users poses a serious issue with the
boardwalk café design. Citizens using the boardwalks must
navigate around the outdoor cafés in a zigzag movement when
using the pedestrian right-of-way. A continuous linear pedestrian
path is favourable for efficient and accessible public sidewalks.
Currently, sidewalk café owners are encouraged to coordinate
their walkways to minimize the zigzag effect. For 2006, all of
the cafes on one block of Argyle Street will have one continuous
boardwalk, designed by one of the sidewalk café owners.
Argyle
Street Bitter End, Dharma Sushi, Picollo Mondo Boardwalk
Sidewalk Cafés.
Losing parking spaces.
Concerns arose from some business owners who feared potentially
detrimental impacts to business as a result of losing parking
spaces located directly in front of their business. In response
HRM negotiated the transfer of some loading spaces into metered
parking spaces. HRM has also constructed the Metro Parkade as a
measure to provide more parking spaces for the whole of downtown,
which is located two streets away from Argyle Street.
Establishing sidewalk café design criteria and
guidelines.
Concerns about the operation of the sidewalk cafés on Argyle
Street prompted a second study in 2001. The study commissioned by
the HRM and the DHBC with the purpose of recommending design
guidelines. The consultants proposed a set of Sidewalk Café
Design Guidelines to compliment the existing Sidewalk Café
Policy. Currently, the HRM provides loose design criteria due to
limited enforcements and resources. HRM requires café owners
to address clearance, pedestrian ways, railings, plantings,
lighting, and construction materials. HRM encourages the use of
cedar or hemlock woods instead of wolmanized wood, which poses
potential chemical sensitivities.
Proposing an alternate design layout.
Consultants proposed a satellite café design layout as a
more appropriate design layout compared to the existing boardwalk
café design. Satellite cafés are located at the
curbside and extend onto the parking lane. Pedestrian traffic
remains on the existing sidewalk which provides consistent linear
pedestrian movement. The satellite café design provides
greater accessibility and consistency in sidewalk design. HRM
identifies two main issues with the satellite café design:
snow removal and servers traveling across the public
right-of-way. Presently, HRM has not adopted the proposed
alternate design layout as part of their Sidewalk Café
Policy.
General
Satellite Café Design
Graphic provided by
Ekistics Planning and Design
Some sidewalk cafés owners resisted the idea of satellite
cafés because they felt the change would not be successful.
However, satellite sidewalk cafés have never been tested in
Halifax, and conducting a pilot project based on lessons learned
from places where satellite café are successful may be
valuable.
Participants
- Halifax Regional Municipality
- Downtown Halifax Business Commission
- Ekistics Planning and Design
- Robert Parker Associates Ltd. Architects and Planners with
Gordon Ratcliffe Landscape Architects
- Business Owners on Argyle Street
Resources
HRM Staff. Staff provided sidewalk café
designs, operational and policy recommendations to Council.
Background studies and design concepts.
Background reports and design proposals were conducted by
consulting teams. The studies provided the HRM staff with a
greater understanding of sidewalk café designs.
Budget. HRM incurred approximately $20,000 in
costs for outsourcing studies to consultants.
Businesses take on the responsibility of all costs associated
with the set up, dismantling and maintenance of sidewalk
cafés. Costs of sidewalk café infrastructures vary
depending on the design.
Business Owners. Businesses on Argyle Street
contribute financially and creatively to the operation of the
sidewalk cafés. The energy provided by the business owners
is reflected in Argyle Street’s success.
Timeline
1995. G-7 Conference International Outdoor
Cafés inspires sidewalk cafés in downtown Halifax.
1995. Businesses establish Argyle
Street’s first sidewalk café.
Winter 1997. HRM and DHBC outsource the
Argyle Street Design Study to Robert Parker Associates Ltd.
Architects and Planners with Gordon Ratcliffe Landscape
Architects, which looked at accommodating sidewalk cafés on
Argyle Street.
Spring 1997. HRM proposes interim policy
authorizing boardwalk cafés on Argyle Street.
1998. HRM adopts Sidewalk Café
Policy.
2001. HRM and DHBC hires Ekistics Planning
and Design to conduct Downtown Halifax: Sidewalk Café Design
Standards report.
Challenges
Accessibility.
Careful attention needs to be made to incorporate barrier free
and universal design principles in sidewalk café building
codes as a means to reduce accessibility issues.
Maintenance.
The responsibility of maintaining public sidewalks and private
café spaces is an issue. Businesses are financially
responsible to maintain the sidewalk café and the
constructed boardwalk public right-of-way, while the Municipality
provides general maintenance of the concrete sidewalk structure.
HRM’s faces resource limitations to enforce businesses
compliance with the conditions of sidewalk café
agreements.
Design and aesthetics.
Marginal design of sidewalk cafés compromises the safety of
the public, while the aesthetic details of the sidewalk
cafés impacts the potential economic success. Comprehensive
design guidelines provide assistance for business owners and the
city to assemble consistent design and aesthetically-pleasing
pedestrian environments.
Funding.
Annual construction and design projects require substantial
investment by businesses in the HRM to complete the projects,
such as in the case of Argyle Street. It is important to gain
support for the project from many stakeholders and financial
sources.
Lessons learned
Select appropriate sidewalk café design
layout.
Each block is unique with specific street and sidewalk
dimensions, which require analysis to choose an appropriate
sidewalk café design layout. Clear linear paths of
pedestrian movement and consistent sidewalk café design
layout per block are essential to provide accessibility for all
users.
Integrate barrier free and universal design
principles.
Barrier free and universal design principles offer excellent
tools to design inclusive sidewalk cafés that accommodate
all users. Sidewalks used for outdoor cafés connect public
and private spaces in a unique way and require great design
attention to ensure accessibility for all users.
Consider permanent sidewalk cafés.
Permanent, all season sidewalk cafés are an attractive
feature for two reasons. First, temporary outdoor cafés are
a nuisance to assemble and maintain seasonally and store
off-season. Permanent outdoor cafés offer the potential for
creative winter design solutions, without dismantling at the end
of the season. Second, year round outdoor cafés offer
opportunity for social activity and engagement all year including
the winter.
Provide comprehensive application process and design
guidelines.
The application process provides businesses with assistance in
developing consistent and accessible sidewalk cafés in
accordance with the municipality’s policy. Businesses have
the opportunity to creatively articulate each sidewalk café,
while the comprehensive application process guides the
consistency of general operation and design of sidewalk
cafés. Municipal enforcement is important in monitoring
compliance and evaluating the effectiveness of the design
guidelines.
Negotiate appropriate financial responsibility and
maintenance of public-right-of ways.
Public sidewalks are an important component of a city and require
significant financial responsibility and maintenance. Contracts
between business owners and the city addressing the ownership and
maintenance of a public right-of-way should be enforced and
evaluated.
Provide public seating and resting areas in places
where there are sidewalk cafés.
Public rest and seating areas provide opportunities for a range
of citizens to contribute to the activities on the street. Public
areas offer citizens equal opportunity to contribute and enjoy
vibrant pedestrian streets.
Next steps
HRM recognizes that sidewalk cafés on Argyle Street
contribute significantly to the vitality of downtown Halifax. At
this time no official studies or plans are being undertaken to
modify the sidewalk cafés or improve the amenities on Argyle
Street.
The 1997 Argyle Street Design Study proposed a re-design of
Argyle Street into a pedestrian only street. Converting Argyle
Street into a pedestrian street would create a special pedestrian
sidewalk café district unique to downtown Halifax. However,
there is resistance to closing down Argyle Street permanently to
pedestrian traffic from the Downtown Halifax Business Commission
and some businesses. Further study to research experiences in
other cities who implement pedestrian streets and a pilot project
would be of value. Many citizens and the DHBC support the closing
down Argyle Street to vehicles for special events.
Ekistics Planning and Design propose the idea of establishing
year round rather then seasonal temporary sidewalk cafés.
Designing for winter climate cities is feasible and beneficial
for public citizens, local businesses and develops unique
character and usability throughout the year. The Downtown
Business Commission and some sidewalk café businesses
support the idea of year-round sidewalk cafés.
For more information
- The Capital District at the HRM at: www.halifax.ca/capitaldistrict/index.html
- Downtown Halifax Business Commission at: www.downtownhalifax.ns.ca
- Ekistics Planning and Design at: www.ekistics.net
- Robert Parker Associates Ltd. Architects and Planners with
Gordon Ratcliffe Landscape Architects
- Thesis titled Sidewalk Cafés and Streets For All!
published by Kim Livingston in April 2004 from Dalhousie
University, Halifax NS.
- Case Study written by the Ecology Action Centre: Marta
Downarowicz, MPLAN, Dalhousie University, Halifax, NS
Marta@dal.ca.
