CATHEDRAL  COMMUNITY  MEMBERS  c/o  –  larissa.mcwhinney@utoronto.ca    -­‐      Don  Meikle  &  Fred  Searle,  City  Planners  City  of  Regina  Planning  &  Sustainability  Department  P.O.  Box  1790  Regina,  Saskatchewan  S4P  3C8      August  25,  2011      Dear  Mr.  Meikle  and  Mr.  Searle,      Re:    Expansion  of  the  Safeway  Store  at  2915  -­  13th  Avenue,  Regina    Please   accept   the   following   feedback   in   regard   to   Development   Application:   Proposed  Rezoning  and  Discretionary  Use  (11-­Z-­10/11-­DU-­16)  (the  Safeway  Proposal).  The  suggestions  below   are   not   simply   a   reflection   of   our   personal   preferences   as   long-­‐time   residents   of  Cathedral  Village  and  ardent  supporters  of  community  culture.  They  have  been  generated  and  refined   as   a   result   of   ongoing   exchanges   with   members   of   the   community   via   a  neighbourhood  Google  Group,  joint  email  discussions  and  multiple  interactions  with  locals.      To  clarify  at  the  outset,  we  are  in  favour  of  the  commitment  Safeway  has  made  to  Cathedral  Village  and  support  expansion  and  renovation.  That  said,  we  have  strong  concerns  about  the  aesthetics  of  the  façade,  the  interface  between  the  exterior  and  interior,  the  internal  effect  of  the  proposed  design,  the  absence  of  active  edges  and  the  effect  on  local  businesses.  Please  see  our  comments  and  suggestions  below.  We  also  offer  some  constructive  ideas  for  how  Safeway  could   use   this   moment   in   its   development   to   establish   stronger   community   ties   with  Cathedral  Village,  and  become  a  more  committed  member  of  our  neighbourhood.      In  what  follows  we  draw  on  the  Regina  Downtown  Neighbourhood  Plan  (the  Plan/RDNP).  We  have   reviewed   various   aspects   of   this   document   and   consider   it   an   excellent   study   and  approach   to   Regina’s   (re)vitalization,   as   do   many   others.   We   posit   that   several   of   the  principles  that  inform  it  should  apply  as  much  to  Cathedral  Village  as  to  the  Downtown  Core  given   the   similarities   between   the   two   areas   (i.e.,   heritage   structures,  walkability,   boutique  shopping   culture,   residential   buildings,   etc.).   Furthermore,   if   the   proposed   Safeway   were  being  built  a  mere  six  blocks  east  of   its  current   location,   the  Downtown  Plan  would  directly  affect  its  construction.  It  seems  disingenuous  not  to  extend  the  reach  of  at  least  some  aspects  of  the  Downtown  Plan  to  the  adjacent  Cathedral  neighbourhood.  Not  only  is  Cathedral  Village  one   of   Regina’s   oldest   areas,   but   it   has   also   developed   in   sync   with   Downtown.  While   we  would  be  interested  in  the  possibility  of  rezoning  the  current  site  to  “DCD”  or  “C”  status,  in  the  meantime,  we  think  most  of  the  principles  and  frameworks  of  the  Downtown  Plan  should  be  invoked  and  applied  to  the  Safeway  Proposal.      

 

 

Architectural  history  v.  big  box  façade  &  design  The   Cathedral   Safeway   is   a   classic   example   of   the   Marina-­‐style   architecture   that   branded  Safeway  in  the  1960s.  Such  modernist  specimens  are  apparently  on  the  decline:  “The  Marina  stores  are  disappearing  even  faster  than  the  pylon  stores  did,  with  most  having  been  closed  or  remodeled   beyond   recognition.   It’s   hard   to   find   many   traces   of   the   old   Safeway”  (http://www.groceteria.com/store/national-­‐chains/safeway/safeway-­‐history/).    The   Downtown   Plan   specifically   recognizes   the   demise   of  modern   architecture   in   our   own  City:  “Regina  also  has  some  excellent  examples  of  modern  architecture,  which  are  beginning  to  be  recognized  as  heritage  buildings  -­‐  as  they  should  be.  Unfortunately,  a  significant  number  of   heritage   resources   have   been   lost,   including   Train   Station   Park   in   front   of   the   old   train  station,   and   a   great   number   of   buildings.   Notable   among   those   lost   buildings  was   The   Hill  building,  Regina’s  first  skyscraper  at  the  edge  of  Victoria  Park”  (RDNP,  p.190).    While  we  do  not  think  the  current  Safeway  must  be  preserved  at  all  costs,  we  believe  any  new  design  could  pay  homage  to  the  dying  modernist  paradigm,  e.g.,  using  arches,  large,  full-­‐length  windows,  integrating  the  Safeway  curve  or  "wave",  etc.  Another  possibility  would  be  to  keep  the   existing   façade,   but   to   build   up   about   10ft   behind   it,   possibly   echoing   the   line   of   the  current  Marina  roof,  adding  more  height  and  windows.      In  terms  of  attempts  to  bridge  past  and  future  we  appreciate  the  following  Safeway  projects:    

▪ Marpole  Safeway,  Vancouver  ▪ Denman  &Robson  Safeway,  Vancouver  ▪ Oakland  Safeway,  California  ▪ Berkeley  Safeway,  California  ▪ Bulingame  Safeway,  California    

 Robson  &  Denman,  Vancouver  

 Oakland,  California  

 All   examples   above   show   an   attention   to   design   and   community   sensitivities   that   the  current  Safeway  Proposal  could  better  reflect.  The  design  in  the  Safeway  Proposal  not  only  fails   to   incorporate   any   modernist   lines   or   architectural   styles   that   are,   in   some   places,  considered  heritage,   it   reflects   the   “big   box”   aesthetic   that   is   anathema   to   the   values   and  image  of  Cathedral  Village.  It   is  also  contrary  to  the  principles  in  the  Downtown  Plan.  One  design  requirement  for  new  buildings  in  the  Built-­‐Form  Framework  is  that  the  construction  have  “beauty  and  will  stand  the  test  of  time”  (RDNP,  p.  125).  The  proposed  design  already  looks   outdated   and   does   not   qualify   as   beautiful   in   the   opinion   of   dozens   of   people  with  whom  we  have  spoken  in  this  regard.      We  very  much  support  the  following  broad  interpretation  of  “heritage”  from  the  Downtown  Plan:   “heritage   conservation   is   not   only   about   saving   old   buildings,   rather   it   is  

 

 

fundamentally   about   enhancing   the   meaning   and   quality   of   life   in   a   specific   place   by  maintaining   its   uniqueness,   and   supporting   the   cultural   and   economic   vitality   that  accompanies  areas  with  strong  conservation”  (RDNP,  p.190).  While  the  old  Safeway  may  go,  any  replacement  should  comply  with  the  principle  of  uniqueness  and  should  support  local  cultural  and  economic  vitality.    Whatever   is  built  now  will   likely   stand   for   another   fifty   years,   and  will,   or   should  be,   the  “heart”  of  the  Cathedral  shopping  district.  The  Marina-­‐style  Safeways  were  cutting  edge  and  are  now  considered   iconic.   The  proposed  design   for   the  13th  Avenue   store   is   generic   and  non-­‐descript.   The   Built-­‐Form   Framework   of   the   Downtown   Plan   states   that   “[b]uildings,  through   their   individual   beauty   and   idiosyncrasies,   collectively   define   a   sense   of   place”  (RDNP,   p.102).   There   is   little   that   seems   individual   or   idiosyncratic   about   the   current  design.      Our   request   of   Planning   Commission   is   that   it   ask   the   applicant   to   consider   alternative  designs   in   light   of   the   Downtown   Plan   principles   that   are   unique,   classic,   historically  interesting   (e.g.,   incorporating   modernist   features,   the   Safeway   swoop/curve,   etc.)   and  aesthetically  appealing  to  the  Cathedral  demographic  now  and  fifty  years  hence.      Preservation  of  Pilon  Sign  with  lettering/lighting  as  is  In   terms   of   acknowledging   the   past,   we   understand   that   the   original   pilon   sign   will   be  preserved   but   that   the   lettering   and   lighting  may   be   changed,   i.e.,   from   red   and   neon   to  black  and  backlit,  as  per  the  new  brand  signage.  Our  suggestion  is  to  leave  the  sign  exactly  as  is  given  the  beacon  it  has  become  in  the  Cathedral  neighbourhood  and  the  historic  merit  it   now   invokes.   Many   people   are   unaware   that   the   lettering   might   be   changed,   and   will  likely   feel   somewhat   misled   if   this   alteration   occurs   after   being   told   that   it   would   be  preserved.      Public  art  &  the  Bob  Boyer  Mural  Among  other  solutions  to  the  paucity  of  aesthetic  value  in  the  Safeway  proposal,  local  artists  could   be   engaged   to  work  with   Safeway   to   give   a   new   building   some   interest   (e.g.,   Chad  Jacklin,   Lorne   Beug,   Jack   Sures).   The   Downtown   Plan   encourages   designers   to   “[e]ngage  Regina’s   arts   community   in   the   planning,   design,   artist   selection   and/or   implementation  process”   (RNDP,   p.186).   The   Plan   states   that   “[p]ublic   art   provides   an   opportunity   to  celebrate  and  showcase  local  arts  and  culture,  establish  a  unique  identity  for  a  precinct  or  development,   and   should   contribute   to   enhancing   the  quality  of   the  public   realm   in  ways  that  conventional  streetscape  elements  cannot”  (RDNP,  p.99).  In  this  light  it  would  also  be  good  to  see  the  Bob  Boyer  mural  either  preserved  or  given  pride  of  place  somewhere  in  the  neighbourhood  if  incorporating  the  current  bricks  is  prohibitive.    “True”  windows  We  are  particularly  concerned  about  the  windows  in  the  Safeway  Proposal.  From  what  we  understand,  the  large  block  of  panes  in  the  middle  of  the  façade  are  “false”.  From  floor-­‐plan  views  of  the  building,   it  would  seem  that  there  will  be  offices  and  bathrooms  right  behind  the   facade,   implying   that   the  windows   in   that  area  will  neither  allow   the  passerby  on   the  outside   to   see   in,   nor   the   shopper   to   see   out.   If   our   understanding   is   correct,   this   will  drastically   impact   the   interior-­‐to-­‐exterior   relationship   between   shopper,   pedestrian   and  community.  A  wonderful   feature  of  the  current  store  is  the  fact  that  you  can  see  shoppers  meandering   from  outside,   and   can  experience  natural   light   from   inside.  We  would   like   to  see   the   historic   feature   of   full-­‐length,   real,   unblocked   windows   of   the   Safeway   flagships  replicated  in  any  new  design.  In  this  regard,  note  that  one  of  the  design  standards  for  new  

 

 

buildings  required  by  the  Built-­‐Form  Framework  in  the  Downtown  Plan  is  that  “the  façade  is   as   interactive   as   possible   at   ground   level,   through   transparency   (windows),   multiple  entrances,   and   active   uses”   (RDNP,   p.125).   We   would   ask   that   this   principle   be   firmly  applied  to  the  entire  Safeway  Proposal.        Parking  Section  5.4.10  of   the  Plan  details  how  parking  should  be  rendered   in   the  downtown  core.  For   new   buildings   the   instruction   is   to   “[l]ocate   parking   underground   or   internal   to   the  building   (preferred),  or   to   the  rear  of  buildings”   (RDNP,  p.139).   Ideally,  we  would   love   to  see   the   parking   lot   either   above   or   below   the   store   so   that   the   current   lot   could   be  transformed   into   the   “heart”   of   Cathedral   as   a   village   square   of   sorts,   with   landscaping,  seating,   space   for   festivals   and   community   gathering,   etc.   (see   more   below).   This   would  hypothetically   benefit   Safeway   as   much   as   the   community   given   that   more   pedestrian  activity   would   be   generated   outside   store   doors   without   impacting   vehicular   entry   and  egress.      Outdoor  spaces,  landscaping  &  roof  terrace  If  the  parking  has  to  stay  where  it  is,  then  it  would  be  great  to  see  benches  (i.e.,  two  at  a  time  at   60   degree   angles   to   each   other)   in   several   communal   spots   around   the   perimeter   and  along  the  sides  of  the  building,  surrounded  by  trees/landscaping.      If  there  were  a  way  to  make  use  of  the  roof  space  should  it  not  be  used  for  parking  (i.e.,  as  a  roof  garden,  a  cafe/terrace,  etc.),  we  would  be  in  favour.      We  would   like  to  see  a  commitment  to  keep  any   landscaping   looking  beautiful,   trash-­‐free,  etc.    Active  Edges  &  Friendly  Façade  According   to   the  Downtown  Plan,   “[s]treet  walls  must   have  many  windows   and   doors   to  provide   ‘eyes  on   the   street’   and  a   sense  of   animation  and  engagement”   (p.126).  The  Plan  states   that   there  may  be  “[n]o  blank  at-­‐grade  street  wall  conditions,  or  mechanical/utility  functions  …   permitted   on   any   frontage   anywhere  Downtown”   (p.   126).   From   the   current  Safeway   Proposal,   it   seems   that   the   sides   of   the   proposed   building   are   completely  windowless  and  almost  featureless,  clearly  contravening  the  principle  of  “no  blank  at-­‐grade  street  wall  conditions.”  While  there  may  be  a  plan  to  install  art  exhibits  along  those  walls,  further  landscaping  and  introduction  of  benches  would  be  an  additional  improvement.      The  Downtown  Plan  also  invokes  the  principle  of  the  “Friendly  Façade:”  “[a]ccording  to  this  feature,   even   existing   buildings   must   be   remediated   at   grade   level   to   create   a   lively,  animated   pedestrian   realm”   (RNDP,   p.ii).   The   façade   of   the   Safeway   Proposal   has   no  structural  animation  at  all.  We  would  suggest  outdoor  café  space   in   front  of   the  store  and  seating   areas   that   interface   between   the   exterior   and   interior   of   the   store   (e.g.,   via   large,  glassed,  garage-­‐style  doors  that  can  fully  open  in  summer  hours).    Atlantis  Café  on  Victoria  Avenue  is  a  good  example  of  how  to  improve  the  “friendliness”  of  the  proposed  Safeway’s  façade.      Store  partnerships  &  proximate  businesses  To  ensure   a   vibrant  neighbourhood  with   strong   economic  prospects,   it   is   essential   that   a  new  Safeway  not  become  such  a  hegemonic  force  that   it  drives  other   local  establishments  out  of  business.  Furthermore,  the  boutique  shopping  culture  of  13th  Avenue  is  essential  to  its   character  and  vitality.  We  have  questions  about   the   stores   that   Safeway   is  buying  out,  

 

 

such   as   the   bagel   shop,   hair   salon   and   the   launderette,   especially   given   that   no   new  businesses,  other  than  Starbucks,  will  take  their  places.  We  also  wonder  about  the  impact  a  new   coffee   shop   will   have   on   the   local   cafes,   and   how   increased   bakery,   deli   and   floral  options  will  affect  the  small  stores  that  surround  Safeway.  We  would  be  interested  to  know  if  an  economic  impact  analysis  has  been  done  to  predict  the  effects  of  the  Safeway  Proposal  on  the  proximate  business,  either  for  better  or  worse.      We   also   wonder   if   the   Safeway/Starbucks   partnership   is   written   in   stone,   or   whether  Safeway   could   create   liaisons  with  more   local   and  unique  businesses   such  as  Roca   Jack’s,  etc.   We   would   welcome   further   information/analysis   in   this   regard,   and   some   creative  thinking  around  alternative  partnerships.    Pedestrian,  family  &  bike  culture  Two   of   the   eight   Big  Moves   that   ground   the   Downtown   Plan   are   “Pedestrians   First”   and  “Cycling  Culture”  (see  Plan,  p.67).  In  this  regard,  not  only  would  we  appreciate  good  bicycle  lock   spots,  we  would   also   support   areas   to   leave/lock   strollers,   as  well   as   doors   that   are  wide   enough   for   strollers   to   pass   through.   Cathedral   Village   is   very   family-­‐oriented,   and  shopping   often   occurs   en  masse.     Safe   zones   delineating   where   to   cross   from   parking   to  store  would  also  be  helpful.        Traffic  flow  In  light  of  the  “Pedestrians  First”  move,  the  Downtown  Plan  includes  various  details  about  pedestrian   flow   and   safety   (see   section   4.3.8).  We   have   heard   concerns   voiced   about   the  safety  and  effectiveness  of  traffic  flow  in  the  Safeway  Proposal.  We  leave  the  details  of  those  to  others,  but  request  that  the  City  ensure  that  contemporary  best-­‐practices  in  that  regard  are  applied.      Multi-­use,  housing  &  scale  We  are  open  to  a  low-­‐rise  apartment  being  included  towards  the  back  of  the  proposed  site  in  line  with  the  principles  for  multi-­‐purpose  buildings  in  the  Downtown  Plan.  We  would  not  want  it  to  be  higher  than  4-­‐5  floors   in  order  to  maintain  the  light  and  scale  of  the  current  intersection.    While  we  support  some  expansion  and  would  not  mind  a  small  height  increase  in  the  main  structure,  we  are  not   in   favour  of  a  store  so  big  that   it  becomes  inefficient  to  do  frequent,  quick  shops  which  are  part  of  the  pedestrian  shopping  culture  of  the  area.      Green  construction  We  support  principles  of  environmental  construction.      Store  content  We   would   like   some   better   food/produce   options,   but   believe   that   this   is   primarily   a  stocking  and  freshness  issue,  not  a  space  or  rebuilding  matter.      Commitment  to  community    We  would  very  much   like   to   see  more  community-­‐involvement  by  Safeway  as  part  of   the  remodel   arrangement.  This   is   a  pivotal  moment   in   Safeway’s  history   in  Cathedral  Village,  and  it  could  be  marked  by  a  renewed  commitment  to  the  neighbourhood,  its  culture  and  its  celebrations.  A  general  feeling  among  some  Cathedral  community  members  is  that  Safeway  does   not   do   its   part   in   the   neighbourhood   –   e.g.,   by   not   being   part   of   the   Business  Association,  not  keeping  its  walks  shoveled,  not  engaging  as  fully  as  it  might  in  community  

 

 

activities,   etc.   (The   staff,   on   the   other   hand,   are   well-­‐known   to   be   wonderfully   warm,  welcoming   and   helpful.)   This   could   be   an   opportunity   for   renewed,   constructive   public  relations  between  Safeway  and  the  residents/businesses  of  Cathedral  Village.      One  of  the  eight  Big  Moves  that  direct  the  Downtown  Plan  is  the  creation  of  Festival  Places,  namely   “spaces   for  gathering   to  allow  arts  and  culture   to   flourish”   (RDNP,  p.77).  The  12th  Avenue  WOW  Project  is  geared  directly  towards  this  ideal.  It  would  be  absolutely  wonderful  to   see   the   parking   lot   on   13th   relocated   above   or   below   grade   in   order   to   transform   the  current   lot   into   another   such  WOW   space.   If   this   is   prohibitive,   there   are   other   ways   in  which   Safeway   could   support   community   gatherings   and   promote   arts   and   culture.   For  example   an   annual,   week   or   weekend-­‐long  winter   flooding   of   the   lot   for   a   local   hockey-­‐tournament,   and/or   pleasure-­‐skating   opportunity,   maybe   coinciding   with   one   of   the  Cathedral  community  events,  would  be  a  strong  sign  of  collaboration.  A  similar  dedication  of  the  space  could  take  place  during  the  Arts  Fest.      To  conclude,  our  request  is  that  the  Safeway  Proposal  architects  produce  new  drawings  that  invoke   innovative  design   that   is  unique,   classic,  historically   interesting   (i.e.,   incorporating  modernist  features,  the  Safeway  swoop/curve,  etc.),  aesthetically  appealing  to  the  Cathedral  demographic,  natural-­‐light-­‐filled,  welcoming  and  supportive  of  local  businesses.  We  also  ask  that   the  design   feature  good   landscaping   (ideally  a   “village  square”),  public  art,   a   friendly  façade  and  "active  edges"  (i.e.,  along  the  sides  on  Robinson  and  Retallack).      We  hope  that  Safeway  will  generate  three-­‐five  new  designs  based  on  the  above  and  other  residents’  input  with  optional  component  parts  that  could  be  reviewed  and  commented  on  by  the  community.      We   also  hope   to   get   feedback  or   initiate   further   research  on  questions   of   neighbourhood  economic  impact  and  potential  business  partnerships.      Many   thanks   for   the   process   you   have   set   in   place   to   review   the   Proposal.  We   take   our  responsibility   to  make  use  of   it  seriously,  and  hope  that  our  views  will  be  sincerely   taken  into  consideration.  We   look   forward   to  hearing   from  you,  and   to  being  notified  of   further  designs  as  well  as  of  the  timing  of  the  Planning  Commission  Meeting.        Yours  very  truly,        Larissa  McWhinney  Director,  Prairie  Sky  School,  Regina    Randy  Widdis  Professor  of  Geography,  University  of  Regina    Julia  Siemer  Professor  of  Geography,  University  of  Regina    Darlene  Juschka  Professor  in  Women’s  &  Gender  Program  and  Religious  Studies,  University  of  Regina