Jackson Shopability Study - MLive.com

Prepared for: Jackson Anchor Initiative

Prepared by: Gibbs Planning Group

11 May 2018 Draft 1.0

Shopability Analysis Jackson, Michigan

TABLE OF CONTENTS INTRODUCTION .................................................................................................................. 3 Executive Summary ............................................................................................................ 3 EXISTING CONDITIONS DISCUSSION ............................................................................. 5 Parking & Circulation ............................................................................................................ 5 Wayfinding & Signage .......................................................................................................... 7 Storefronts ............................................................................................................................ 9 Site Furnishings ................................................................................................................... 15 INFILL OPPORTUNITY SITES ............................................................................................ 18 ADOPTED CODE & PLAN REVIEW ................................................................................... 19 Jackson Next: Community Master Plan ............................................................................... 20 Zoning Code ......................................................................................................................... 21 MERCHANDISING PLAN ..................................................................................................... 21 IMPLEMENTATION ............................................................................................................. 23

Jackson Shopability Analysis 3. Gibbs Planning Group, Inc. 11 May 2018

INTRODUCTION

Figure 1: Downtown Jackson spans over 150-acres containing several key employers, cultural and civic institutions and a variety of retail, restaurant and recreation opportunities. Executive Summary This study finds there are several short- to long-term strategies to revive the commercial health and improve the urban experience of downtown Jackson. Once the third most populous city in Michigan, Jackson now ranks 52nd with the swell and recession of downtown activity leaving a myriad of built conditions to rationalize. In recent years, the city has made considerable progress by converting Louis Glick Highway to two-way traffic, completing an overhaul of the Michigan Avenue streetscape and attracting developers downtown. However, the retail market still languishes and the 24/7 downtown desired by residents, workers and employers has yet to materialize. By understanding and implementing best practices of the retail and real estate development industries while enforcing many reasonable existing regulations, Jackson can advance its growth and revitalization in a measured and market-driven approach. The task of managing and maintaining an outstanding downtown is complex. The ability to centralize design, tenant mix and leasing, maintenance, marketing and pedestrian and traffic flow brought about the proliferation of indoor shopping malls and lifestyle centers for much of the 20th century, often at the expense of nearby downtowns. While shopping centers are still a viable land use, a renewed interest in urban living, working, shopping and dining, has positioned downtowns like Jackson to reclaim market share and attract the amenities and development to improve the quality of life for the community. Yet, the cohesive management of the shopping center is now expected by the downtown shopper and it is the duty of the downtown and the city to determine how best to deliver this level of service. The following analysis provides best practices for current issues facing the downtown, a comprehensive study of the existing conditions and a review of adopted plans and regulations, each with recommendations and strategies to achieve sustainable downtown commerce and vibrant community life. Coordinating implementation and assigning duties to the responsible

4. Jackson Shopability Analysis Gibbs Planning Group, Inc.

11 May 2018

parties will be essential for any recommendations to successfully impact downtown commerce. Similarly, educating and soliciting cooperation from the business owners and workers and the development community can ensure that the public and private sectors are in stride and invested in the collective success of downtown Jackson.

Figure 2: Storefronts and wayfinding signage often create the first impression of a downtown shopping district. In summary, GPG recommends the following as integral to sustainable retail commerce in downtown Jackson:

• Create specific storefront and signage standards for downtown that document the rich architectural and design heritage of Jackson while encouraging creativity and exceptional design.

• Fund a façade grant program for downtown storefronts and upper floors to implement newly created architectural standards. Offer technical assistance and design review before installation.

• Install a multi-scale wayfinding system that includes monuments at key entries, directional signage, parking identification and a downtown map and store directory. Wayfinding should consistently represent the downtown Jackson brand.

• Incentivize the conversion of upper stories to residential or office uses.

• Coordinate or incentivize the infill development of key downtown properties.

• Remove downtown parking requirements in favor of a payment-in-lieu-of-parking (PILOP) program. Facilitate shared parking agreements, consolidate surface parking, operate downtown worker permit program, monitor parking demand and capacity and construct facilities as needed.

• Create a downtown coordinator position to enforce standards, improve general maintenance and ensure safety and cleanliness of downtown environment.

• Document and continually update available downtown real estate and actively recruit new downtown residents and tenants.


EXISTING CONDITIONS DISCUSSION Parking & Circulation

Observation: Parking signage lacks visual continuity and regulations may be unnecessarily confusing. Discussion: Finding parking is one of the first experiences a customer has downtown and should be reasonably convenient and conflict free. Parking signage should be aligned with an overall wayfinding and branding theme that is consistent throughout the downtown. Organizing parking lots by number or color is a common practice, however these designations do not translate to the unacquainted visitor; naming lots based on the nearest intersection, building or landmark is more productive. Hourly parking limitations, permits and capacity should be studied on a regular basis for adequacy and applicability. A myriad of time limitations is often unnecessary, difficult to enforce and confusing to visitors – a uniform two- to three-hour limit is sufficient. Similarly, worker permit parking should not be located in the most convenient parking lots and should be monitored so that valuable downtown stalls are not unnecessarily reserved by a permit program operating at less than capacity. Furthermore, the city and downtown employers should take equal responsibility directing employees to off-street parking and preserving convenient on-street spaces for shoppers.

Observation: Parking lot entrances detract from the walkability of Michigan Avenue.


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Discussion: Downtowns rely on off-street parking, however curb cuts or driveways should be limited or entirely removed along the core blocks. Frequent curb cuts severely disrupt walkability due to frequent entering and existing vehicles, while absorbing valuable real estate that could otherwise add to the continuous storefronts along Michigan Avenue. The two curb cuts displayed above are particularly suitable for removal because there are alternative entries to the lots they serve and they are oversized causing vehicles to speed through while intimidating pedestrians.

Observation: Storefronts without on-street parking have long-term vacancy. Discussion: Downtown retail requires adjacent on-street parking. Competing with conventional shopping centers outside of the downtown requires that customers be able to find convenient parking in front of their desired locations. Both examples above are streets with the capacity for a road diet that would add on-street parking. Often, restriping the street temporarily can be used to study the effectiveness of a road diet. All storefronts without adjacent on-street should be analyzed to see if on-street parking could be added.

Observation: Alleys are poorly signed and under-utilized.


Discussion: Alleys are an integral part of downtown’s urban design. In most instances, they are no longer needed for vehicular access but instead provide valuable pedestrian connections. To encourage their use, naming and signing each alley and providing some directional information would increase pedestrian comfort. Soft lighting and compatible uses such as outdoor dining can transform these spaces and expand the downtown experience. Even instances where auto access is still required, pedestrian enhancements can significantly improve the study area’s walkability. Wayfinding & Signage

Observation: The downtown lacks any formal entrance or wayfinding from the major business routes. Discussion: Historically, Michigan Avenue was the region’s primary route connecting Detroit to Chicago, directing many travelers through downtown Jackson while giving retailers excellent visibility. Since the bypass routes (Washington Avenue, Cooper Street, Louis Glick Highway) were implemented in the 1960s, a large percentage of area traffic is directed around, instead of through, downtown and passersby are not compelled to drive by many downtown retailers. Short of reconnecting Michigan Avenue and redirecting traffic through the downtown (which should be considered if the Jackson Health and Human Services Building becomes obsolete), significant improvements can be made through wayfinding and branding. The major entrances to downtown from the bypass should be marked with monuments of considerable size directing motorists downtown while reflecting a branding theme that would be found throughout the downtown’s wayfinding system.

Observation: Unique, vintage, sculptural and neon lit signs give downtown a distinct identity.


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Discussion: Unique signage can differentiate a downtown from banal shopping centers. Some vintage signs in Jackson add to the downtown’s identity and are enjoyable in the evening. These signs should be preserved and refurbished if necessary and the sign code should encourage similarly creative signage.

Observation: Minor entrances to downtown lack any signage or wayfinding. Discussion: Aside from the major, more heavily used entrances there are a number of cross streets connecting the surrounding neighborhoods and local traffic to downtown Jackson. These intersections should be more pedestrian in scale to visually signify the change in the built environment and include wayfinding signage directing pedestrians and motorists into the downtown.

Observation: Paste-on, temporary, or internally lit signage are not appropriate for downtown shops. Discussion: Well-designed and properly scaled signage contributes to strong retail sales and an attractive downtown. Excellent commercial signage reinforces the unique nature of a downtown and forms the impression that its businesses offer true value, specialized goods and quality services. Internally illuminated box signs are bulky, often have a tacked-on appearance and can


produce glare that causes the eye to squint, narrowing its view of the storefront. Similarly, signs painted or pasted directly on buildings lack visual depth and tend to fade, crack or peel, creating an eyesore. Temporary signage lacks permanence and should be avoided altogether. The sign code and building standards should be reviewed and optimized to achieve effect signage and a design review board should be formed to encourage creativity and recognize unique business circumstances of building conditions that require variances. It should be noted, temporary banners are only permitted for up to 30 days by the zoning code. Storefronts

Observation: Traditional storefronts have been covered up by non-traditional retail tenants. Discussion: Retail frontages are essential for a walkable downtown environment. Blank walls can be intimidating and detract from the streetscape. Even non-traditional tenants should adhere to storefront standards and be encouraged to have representative displays in their windows. Windows should be well lit to illuminate the sidewalks at night, especially during short winter days.

Observation: Vacant storefronts displays are unregulated. Discussion: Downtown vacancy happens in every city, but vacant storefront display standards can mitigate the negative impacts. The city should have a standard “Coming Soon!” decal with information for the appropriate city contact. Leasing posters should also be uniform in dimension and limited in number. “We’re Moving” type signs should be taken down within a reasonable timeframe of the store closing and event specific notices should be removed immediately after the event. Ideally, property owners should be encouraged to create window displays with local


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information or celebrating some aspect of the city’s history or culture. Similarly, the city may work with property owners to lease vacant window space for a reasonable fee to curate city designed displays and offer consistent messaging.

Observation: Several upper stories in the downtown are boarded up or shuttered. Discussion: Boarded up and shuttered buildings are intimidating, unsightly and give the perception of crime. Converting upper floors to office and residential uses should be a priority and may require special permitting, technical assistance or other incentives to encourage downtown property owners. At a minimum, shutters should be removed, new windows installed if needed, and the windows should be lit in the evening to improve the downtown streetscape.

Observation: Windows displays are treated as walls. Discussion: Windows are essential for window shopping – a fundamental downtown activity. Window displays add optical intrigue and serve as advertisements for the types of goods and


services offered inside a business. Walling off windows or treating them as storage limits the inherent value they generate for the store and the walkability of the downtown.

Observation: Vinyl or aluminum siding and paneling are not suitable materials for storefronts. Discussion: In a downtown filled with exceptional storefronts of various architectural styles from different eras of development, out-of-context building materials sorely stand out. Cladding, siding or paneling, especially when used to cover a traditional storefront, is inappropriate for a downtown shopping district. It should be noted that vinyl siding, metal and wood siding are not permitted by the zoning code.

Observation: False fronts, curtain walls and architectural glass facades are out of context on Michigan Avenue. Discussion: The majority of buildings downtown were constructed at the turn of the 20th century and are characteristically designed in the Main Street vernacular. While the downtown doesn’t necessarily have to maintain one architectural style throughout, dated, architecturally inferior and out of context facades should be replaced. Blank facades or curtain walls stand out in the


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streetscape and detract from the variety and aesthetic experience expected when shopping and dining downtown. Often, wonderful prewar facades remain intact behind curtain walls and simply need to be revealed, while more intense solutions may be required in some cases.

Observation: Dark-tinted or mirrored windows prevent would-be customers from seeing the interior of a business and detract from the street experience by effectively creating a blank wall. Discussion: Shoppers feel unsafe entering a business they cannot see inside. Dark-tinted windows limit the opportunity for window shopping and pedestrians are known to walk faster along tinted storefronts. As a result, businesses are compelled to use tacky signage or other gimmicks to alert shoppers that there is an operable business behind the dark façade. While glare from the sun is a valid concern, modern glass can avoid these adverse conditions while maintaining a clear appearance. Furthermore, awnings, shades, blinds, sails, louvers and working shutters are a few design solutions which can increase architectural variety and still allow natural sunlight into the store. Particularly in northern climates, natural sunlight can increase sales by 20 to 30 percent. It should be noted that reflective glass is not permitted by the zoning code.

Observation: Long, blank walls are uncomfortable to walk along. Discussion: Long walls lacking in architectural variety are imposing to walk along and are uncharacteristic in an urban setting. There are a variety of treatments for long walls including changes in height, recesses and projections along the façade, ornamentation, architectural


details, landscaping such as vines or murals. It should be noted the zoning code has similar standards for walls greater than 100-feet in length.

Observation: Shop entrances are covered in signage, stickers and decals. Discussion: The first experience a shopper has with a store is the entrance. Studies have shown a direct relationship between the size of the font used and the amount of clutter in a door or window and the perceived value of goods inside. Smaller font and few decals will lead customers to believe they are going to receive excellent service, unique products and a good value. A cluttered storefront is intimidating in its limited view of the store’s interior and suggests the experience inside will be equally confusing. Stores should be limited to one temporary sign or flyer per store and one-square foot of permanent signage per 10-feet of linear storefront. Additional kiosks for community information should be installed at key points in the downtown to absorb some of the need for window flyers.

Observation: Buildings show signs of deferred maintenance. Discussion: Downtown buildings are a form of advertisement for the entire district. A prevalence of damaged, dirty or temporarily fixed buildings reflect poorly on the businesses within downtown


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and the goods, services and experiences offered. Damaged buildings should be repaired immediately. Facades should be frequently cleaned or power-washed. Temporary or residential fixes like the middle image should be replaced with more permanent and contextual installations as quickly as possible.

Observation: Unfinished aluminum storefronts are more appropriate for suburban shopping centers than an urban downtown. Discussion: A cheap storefront suggests to the customer that the business offers lesser quality and generic goods and services. Standard aluminum storefronts can detract from otherwise desirable downtown facades as pictured above. Storefronts should appear custom or handmade and accentuate the uniqueness of the study area. Storefronts should change with new tenants and longstanding businesses should update their stores every six to eight years. At a minimum, aluminum storefronts should be powder coated with a dark color that accentuates the window merchandising.

Observation: Painted storefronts show signs of wear.


Discussion: Painted storefronts should regularly be repainted to avoid showing wear or dirt. Colors should be changed every five years to present a refreshed look. Cracked or chipped paint should be removed and repainted promptly. A new coat of paint is affordable and projects a sense of pride. Site Furnishings

Observation: The Bucky Harris Park is walled-off from the downtown. Discussion: A landmark or monument at the intersection of Jackson Street and Michigan Avenue is justified, however the full-length wall is imposing and limits visibility into and out of the park. Visibility is important for safety and essential for the pedestrian experience – public spaces are places to see and be seen. Most pedestrians will feel intimidated not knowing what is on the other side of the wall or around the corner and the limited entry points create a perceived threshold that is less than inviting. Similarly, the building walls to the north and east of the park need improvement as they currently look blighted.

Observation: Fixed seating is under-utilized in Blackman Park. Discussion: People prefer the customization of movable park furniture which often costs less than fixed options. Chairs are more comfortable than bench seating; people can arrange chairs how they like and move to adjust to the sun or noisy events during different parts of the day. Chairs also allow individuals or groups to adjust the table size more efficiently – a lunch user is more likely to ask to borrow an un-used chair than to sit at a fixed-table already occupied by another


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person. In parks where flexible seating has been implemented, theft and vandalism are seldom experienced.

Observation: Site furnishings are in disrepair. Discussion: A poorly maintained streetscape with rusting site furnishings signals to customers that the downtown is not cared for, unsafe and not likely to have goods and services at a good value. In turn, customers will view shopping in downtown as not worth their time. Site furnishings should be repainted annually at a minimum and broken furnishings should be replaced immediately.

Observation: There are signs of vandalism that have yet to be cleaned up.


Discussion: Signs of vandalism give a perception of crime and should be remedied immediately. Delayed action to clean them up suggests that they are OK and not worth the time to fix. Additionally, an extended existence invites more vandalism with the potential to snowball into a more serious problem. Successful cities have curbed vandalism through a “clean and safe” coordinator who walks the downtown on a daily basis and coordinates repairs or the cleaning of dirty, vandalized or unsafe incidents.

Observation: Sidewalk furnishings are not regulated. Discussion: Stores should be limited in the furnishings or merchandise they can place in front of their stores. While planters, sandwich boards and other furnishings can enhance the streetscape, they can also detract from the experience. Planters should be made of durable materials and reflect the season or climate. Sandwich boards should appear handmade and specific to the business they are advertising, rather than store-bought or generic. Merchandise displays should be limited and only displayed for special occasions or sales rather than daily.


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INFILL OPPORTUNITY SITES

Figure 3: There are several opportunities for infill development in downtown Jackson. The following eight sites should be prioritized to bolster the walkable shopping district. It should be noted Site 3 & 4 were also identified by the 2016 Jackson: Next Master Plan. Like many historic cities, adjusting to increased automotive use throughout the 20th century resulted in a downtown filled with surface parking lots. Gaps in development due to parking lots (sometimes referred to as “missing teeth”) create an undesirable pedestrian experience and compromise the walkability of the study area with frequent curb cuts. Often, these gaps can be infilled with relatively inexpensive liner-type buildings at the expense of only a few parking spaces; a worthwhile trade off in a downtown flush with parking and in need of modern retail space. For instance, constructing a two-story liner building in between the Jackson County Tower Building and Walt’s Health Foods would absorb nine parking spaces. Those nine parking spaces are conveniently located and are likely used throughout the day by downtown workers and shoppers. However, the same space could be used to offer contemporary retail and/or office spaces, bring new workers and shoppers downtown, generate tax revenue and significantly improve the walkability and cross-shopping potential in downtown. The benefits of the infill development far outweigh the cost of asking shoppers to park at another nearby spot. There are several potential sites for infill development in downtown Jackson, however the priority should be to fill in along Michigan Avenue between Jackson Street and Francis Street and Mechanic Street between Washington Avenue and Pearl Street. Establishing four to five blocks of exceptional urbanism and walkability will create the critical mass necessary to attract residents, visitor and workers downtown regularly. Additionally, the distance between Francis Street and Jackson Street (1,200-feet) has been proven the optimal length of a walkable shopping district.


Indeed, most shopping malls measure 1,200-feet from end-to-end. Focusing on Michigan Avenue and Mechanic Street, creating a complete walkable core which can increase retail and residential demand, will then spur redevelopment throughout downtown.

Figure 4: Even well-landscaped parking lots compromise walkability. Parking lots are development-ready infill sites that could improve downtown commerce at the expense of just a few parking spaces. As the eastern entrance to downtown Site 1, the space is too important to be dedicated to a large surface and underground parking lot. Adjacent to an otherwise walkable block and near major employment centers, new development would appeal to a variety of retail users and create a proper gateway to downtown. The buildings could be liner-type buildings, 25- to 30-feet in depth or more substantial mixed-use buildings, but should be designed to still allow access to the parking lot and structure. Similarly, infill development at Sites 2, 3 and 5 would increase walkability in the heart of downtown and could be accomplished as catalysts or case study projects as they are under city control. Site 3 was identified in the 2016 Master Plan as a desirable infill location, particularly because the parking lot to the south could accommodate a parking structure if needed. Sites 4, 6 and 7 would complete otherwise continuous storefront coverage along their respective blocks. Any parking lost to infill with these spaces could be absorbed by underutilized areas in the same parking lots or recouped through on-street parking spaces gained by consolidating or eliminating unnecessary curb cuts. It is important to note that infill development at these sites would replace buildings which had been demolished on the same site years ago. As the downtown core experiences the benefits of infill development and increased walkability, infill at Site 8 would be an important gesture connecting Michigan Avenue across Jackson Street. Historically, the intersection of Michigan Avenue and Jackson Street was the epicenter of downtown and squares on all four corners signaled a sense of arrival. A surface parking lot is antithesis to the historical importance of this intersection and the sense of arrival desired at this site. ADOPTED PLAN & CODE REVIEW To ensure the adopted plans, codes, regulations and proposed plans concerning downtown are working and promoting vibrant and sustainable commerce, GPG reviewed the Jackson: Next Community Master Plan (2016) and the zoning code. Under the lens of commercial vitality, the following discussion offers innovative and contemporary strategies for improving long-established


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plans and regulations in a manner that encourages sustainable retail development and vibrant community life. Jackson: Next Community Master Plan

Figure 5: The 2016 Master Plan contains a comprehensive streetscape master plan that has encouraged the conversion of Louis Glick Highway to two-way traffic with additional strategies to improve downtown circulation. The Jackson: Next Community Master Plan (2016) is an exceptional and visionary planning document. By and large, GPG agrees with the recommendations of the plan and particularly emphasizes the following strategies:

• Convert the Louis Glick / Washington Street loop to two-way streets as recommended by infrastructure consulting specialists URS.

• Develop the Jackson “brand” through a process that combines meaningful citizen contribution with quality professional guidance.

• Assess and document all real estate opportunities, including the extent of any structure removal or site remediation necessary for use as well as the time and money required to achieve it.

• Develop a comprehensive downtown vehicle parking strategy that maximizes parking on streets and in lots and minimizes isolated parking areas that fragment the streetscape. This may include the development of a Payment In Lieu of Parking program that replaces the burden of supplying parking facilities from individual businesses in the core area with support for a comprehensive solution.

• Institute a maintenance program so that the downtown offers a clean and inviting appearance.

• Encourage adaptive reuse of historic structures and disseminate information about them.

• Enforce housing and blight codes to ensure responsible stewardship of downtown rental properties.

• Revise the zoning ordinance to accommodate mixed uses in selected areas. At minimum, the C-3 Central Commercial district should permit mixed uses by right.


Zoning Code The zoning code should be expanded or a separate standard should be produced for downtown architectural and sign guidelines. Overall, the zoning code is too permissive and fails to honor the rich architectural history found downtown and documented in the “2004 City of Jackson Intensive Level Survey of Twenty-Five Properties.” A minimum standard for storefronts should include the following standards:

• At least 60 percent of small to medium-sized retailers’ first-level elevations facing primary sidewalks should be transparent glass, even if the first level is an office or nonretail use.

• A horizontal break between the first level and upper levels should be designed to focus attention on the retailer.

• The storefront’s signage, awnings, and materials should remain in character with the historic framework of the building.

• Awnings should project no more than 6 feet and be at least 8 feet above the walk; to allow for more light, awnings should be a single plane rather than a curve and have no side panels; plastic and internally illuminated awnings should be prohibited.

• Upper-level businesses should be allowed to have window signage and projecting signs up to 24 square inches in area.

• Doors facing the street should be recessed into the building façade when practical. • Each business located downtown should be limited to 1 square foot of signage for each

linear foot of storefront. The maximum height for letters should be 10 to 14 inches. • Internally illuminated box signs are inappropriate for most urban shopping districts and

should be prohibited. Except in rare circumstances, signs painted directly on buildings should not be permitted.

• Projecting signs, or blade signs give stores on urban streets the visibility necessary for attracting pedestrian shoppers. The base of these signs should be at least 8 feet above the sidewalk, and their outer edge should project no more than 3 feet from the building façade; 3 to 4 square feet of total area is more than adequate in most urban conditions.

• A variance should be provided for the exceptionally creative landmark sign, such as a major piece of neon or a sculptural work of art that fails to comply with existing sign ordinances.

Additionally, the existing code should consider the following alterations:

• Phase out Auto Washing, Automobile Repair, Automobile service station, Automobile truck and trailer display and sales as permitted or conditional uses in C-3.

• Allow bed and breakfast, tourist homes • Allow residential units on the ground floor, but require floor-to-ceiling heights that would

allow a conversion to commercial use if the market demands. • Allow manufacturing or processing that is compatible with or extension of retail such as

jewelry/watch assembly, coffee roasting, home furnishings, furniture, electronics, music etc. Limit size to 10,000 sf.

• Remove downtown parking requirements in favor or a payment-in-lieu-of-parking (PILOP) program which the city can use to assemble public parking and finance the construction of parking facilities as needed.

MERCHANDISING PLAN A recent retail market study completed by GPG found that downtown Jackson could support an additional 108,400 sf of retail and restaurant development across an array of categories including


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grocery, restaurants, department store merchandise, apparel, furniture and home furnishings, pharmacy, sporting goods and gifts. The market study was completed to understand the commercial development potential, aid in attracting new retail tenants and provide guidance as to the types of retail that are supportable and could complement the existing critical mass in downtown. Business recruitment is an essential task if Jackson is going to continue to evolve and improve its tenant mix, and an understanding of where particular tenants should locate is necessary to leverage new store deployments for the greatest community impact. The following merchandising plan creates three thematic zones each with prevailing retail categories. These zones were created with regard to the existing retailers, shopper traffic patterns, industry standards and preferred retailer locations, together organized to generate and sustain increased downtown commerce. It is important to note that each zone should overlap with the adjacent zones and a particular zone is not exclusive of a particular retail category. A common point of contention has been to eliminate artificial boundaries within downtown– overlapping retail themes is an important aspect in achieving more seamless transitions

The three merchandising zones proposed are: Gateway District, Core Retail District and Local Servicing District. The following is a brief rationale and description of each of the three thematic districts:

• Gateway District A majority of downtown arrivals occur on the east end of downtown, due in part to adjacent major employment centers. In many ways, this district sets the tone for the rest of downtown and receives the most amount of pass-through traffic. This district should present a strong retail tenancy that encourages shoppers to further explore downtown while also catering to quick lunchtime or pass-through trips. The urbanism and storefront qualities should be exceptional, signaling the essential differences between downtown


Jackson and other area shopping centers. Existing vacant storefronts and infill opportunities provide an excellent opportunity to provide highly marketable store footprints, ranging from 1,200 sf to 7,500 sf, that are desirable for a wide variety of retailers. The suggested retail categories for the high visibility retail zone are: quick-service restaurants, full-service restaurants, apparel and shoes, cafes, specialty foods, electronics, general merchandise and pharmacy.

• Core Retail District The central core of Jackson contains the most compelling critical mass of existing retailers and walkable urbanism to support a robust business district. The Core Retail District should accommodate quick, purpose driven trips, but is primarily engaged in attracting shoppers who will spend more than 20-30 minutes in the area visiting multiple businesses – walkability and convenient parking are essential. There are few infill sites available that could accommodate a junior anchor up to 30,000 sf and several smaller spaces with as little as 500 sf available; the possibilities are broad and the highest and best tenants should be targeted. Activity on Michigan Avenue should be concerned with modernizing storefronts and bolstering the diversity of goods available, while development on secondary streets is integral to ensuring affordable spaces are available for local entrepreneurs. The attraction of an anchor or signature tenant would have broad benefits to the zone. The suggested retail categories for the Core Retail District include: apparel, accessories, books, breweries, cosmetics, department store merchandise, furniture, gifts, grocery, fashion, home furnishings, jewelry, restaurants, shoes, sporting goods and toys.

• Local Serving District While the east end may be the more prominent entrance to downtown, the west entrance is equal in importance and is more commonly used by locals familiar with downtown. The neighborhood retail zone in intended to provide locations for daily consumer needs in a walkable setting. With a combination of large infill sites, existing neighborhood retailers and small infill or redevelopment sites, the neighborhood retail zone can accommodate a wide variety of retailers desired by the community. Store footprints should range from small pop-up shops of 100 sf to a large grocery store; small retail shops will ensure there are affordable retail spaces to rent for local entrepreneurs. Where possible, residential or office uses should be included above ground floor retail space. The suggested retail categories for the Local Serving District include: bakery, butcher, brew pubs, ethnic foods, family apparel, take-out, florist, financial services, grocery, hardware, office supplies, home furnishings and salon, barber or personal care.

IMPLEMENTATION As a result of an existing conditions analysis, code and plan review and merchandising recommendations, this study includes numerous strategies for building infill, lighting, open space, parking, storefronts, streetscape, tenant mix, vehicular circulation and walkability. To ensure sustainable commerce, maximum shopper appeal and strong sales, the following chart organizes the recommendations of this study by their short-, medium-, and long-term implementation targets.


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Shopability Analysis Implementation Strategies

Short-Term Medium-Term Long-Term • Create specific signage and

storefront architectural standards for downtown

• Install comprehensive, multi-scale wayfinding system

• Fund façade grant program

• Establish parking management fund to receive PILOP fees and fund parking improvements

• Eliminate parking requirements and study parking capacity and utilization in the study area

• Remove ineffective parking time limits

• Clean, repair or replace vandalized or worn signage, furnishings, light poles etc.

• Clean sidewalks and other public surfaces on regular schedule, coordinate façade cleaning

• Enforce existing codes and coordinate with business/ property owners to update non-compliant or worn storefronts

• Study infill sites and identify barriers to implementation

• Add moveable seating to Blackman Park

• Hire or appoint downtown coordinator

• Incentivize upper floor conversion to residential or office uses

• Implement a comprehensive parking management plan, broker shared parking arrangements, fund surface lot or new facility improvements

• Study availability of on-street parking in front of storefronts

• Consolidate study area zoning into comprehensive form-based standards that honor historic character of Jackson while incentivizing redevelopment

• Hire business recruitment coordinator

• Infill city-owned sites along Michigan Avenue

• Remove wall enclosing Bucky

Harris Park

• Coordinate or incentivize infill development at key, privately owned sites

• Eliminate non-essential curb cuts along Michigan Avenue

• Pedestrianize alleys

throughout study area

• Ensure all downtown facades comply with industry standards

• Reconnect Michigan Avenue

across the Grand River

• Encourage development along the Grand River waterfront.

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