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Public Market Feasibility Study: Proposed Scope of Work
Economic Development and Housing Department,
Clearwater, Florida
September 9, 2016
PROPOSED SCOPE OF WORK
The City of Clearwater is interested in creating an indoor market in the East Gateway
District of the city's downtown. As a predominantly Latino neighborhood, the city
believes that the public market could become a Mercado.
Project for Public Spaces (PPS) defines public markets as markets which operate in or as
a public space, feature only locally owned and operated businesses, and which have a
broader public purpose, such as neighborhood revitalization or improving community
health. It is a definition which covers a wide variety of markets, forms which are still
evolving. Public markets meeting PPS's definition, as shown by the lessons of so many
farmers markets today, do not even necessarily require a permanent building or facility.
However, as demand for local food increases dramatically around the country, many
communities are looking at ways to operate their markets more year round, providing
more opportunities for local producers and customers.
The overall objective of this study is to assess the feasibility for a public market in the
East Gateway District. The goal of the market is to create an anchor destination in the
district that can also be a community gathering place (what is also being called a festival
core in City of Clearwater planning documents.) PPS will also recommend a form of
public market most suited to Clearwater.
PPS's services for public markets are comprehensive from feasibility to opening day.
This proposal is only for the first phase of the project.
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Phase I: Vision, Feasibility Assessment, and Site Selection
I. Review of Existing Documents and Conditions
At the start of Phase I, PPS will review previous surveys, studies, budgets, and relevant
documents to become familiar with the area and to establish a firm foundation for
completion of this assignment, and to provide context for a two -day site visit.
II. Site Visit
During the site visit, PPS will conduct the following activities:
• Site Tour and Orientation to the Master Plan
PPS will tour downtown Clearwater and the East Gateway District site as well as
local supermarkets and specialty food shops.
The Client will provide a complete briefing on the Master Plan.
• Key Stakeholder Meetings
Interviews and small group discussions will be held with a limited number of key
stakeholders which the Client identifies as being important for the project.
• Stakeholder Workshop/Training
A participatory process will be used by which participants learn about the
benefits and pitfalls of developing a public market, the different forms they take,
and how to mitigate risk. Based on this understanding, the goals will be created
for the proposed market, including a mission statement and overall framework
for its development. Other potential complementary uses for the proposed
market building as well as uses and activities for associated public spaces will be
identified as well.
The workshop will provide a forum for approximately 20-25 people from the public and
private sectors and other key stakeholders to work together cooperatively on
establishing a groundwork for effective implementation of the public market.
Attendees, who will be identified and invited by the Client, may include city staff,
representatives from the existing farmers market, local interested groups, and the
proposed market sponsor. This group, or part of it, could form an Advisory Group to
serve as a sounding board for the development of the future Public Market.
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• Vendor Open House
PPS will host an open meeting of interested vendors and businesses to present
the concept for public markets generally, and get feedback about their potential
interest. Participants will be asked to fill out an online questionnaire (see below).
III. Estimate Market Demand
To estimate market demand for a proposed market and determine the optimal
operating scale of the market, we define a trade area for the market and evaluate the
primary demographic and economic characteristics that influence the quality of the
location. We will map these characteristics using our geographic information system
(GIS). The final part of this analysis is to estimate the existing consumer demand by
various food categories. We use a computerized gravity model that will estimate an
achievable market share for the market.This method will also help determine the
merchandising plan.
IV. Assess Vendor Capacity and Interest
To determine if there are a sufficient number of potential operators to fill the various
product niches, PPS will conduct an online survey using "Survey Monkey" to determine
the interest of both existing local businesses and vendors to be identified by the City.
The survey will be distributed by the City and other local economic
development/community groups. The survey will also provide a preliminary assessment
of what assistance they might require to locate in the market. Based on this research
and outreach, we will prepare a working list of potential tenants and their level of
interest and their self-defined requirements (size, servicing, location, etc.).
V. Assess Customer Satisfaction with Existing Fresh Food Purchasing Options
The fate of a proposed market rests largely on getting local residents to patronize the
proposed market.This will be done through an online survey using "Survey Monkey. "
(Survey to be prepared/analyzed by PPS and promoted/distributied by the client locally.
If a paper survey is preferred, the client will coordinate its distribution and data input).
The survey will measure what consumers believe is important to them in their food
buying, their level of satisfaction with how their needs are currently being met, and
their experience with patronizing public markets.
VI. Site Selection and Assessment
Like all retail enterprises, "Location, location, location" is a mantra that applies to public
markets. To be successful, public markets need sites that are visible, accessible, and
convenient. They also need sites which, because of their location or context, have a
special quality that the public market can build into a major public destination. At the
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same time, site control should not put an undue financial burden on the market. PPS
works with clients to establish site selection criteria, evaluate each, and make a
recommendation for a preferred site.
VII. Market Concept
Based on the work conducted to date, PPS will recommend a concept for the public
market, illustrated by one or two simple conceptual diagrammatic plans and images of
comparable facilities. Recommendations will include potential options for use of space
in a public market structure as well as surrounding public spaces, and will identify
potential tenants and users. Opportunities for further short-term, low cost testing of
the public market concept will also be recommended.
VIII. Phase I PowerPoint Presentation &Teleconference
Prior to submission of the Phase 1 PowerPoint Presentation, PPS will host a
teleconference to review findings and recommendations.
A final PowerPoint Presentation will summarize all of the information collected in this
phase. Detailed technical appendices will be provided separately with survey results,
notes from the stakeholder meetings, and other relevant data.
Project Team
Steve Davies, Executive Vice President, Project for Public Spaces
Kelly Verel, Vice President, Project for Public Spaces—project manager
David O'Neil, Senior Director, Public Markets Program, Project for Public Spaces
Larry Lund, Real Estate Planning Group
Phase I Budget
The total budget for Phase I is $50,000 including expenses.
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ABOUT PPS'S MARKET PROGRAM & OUR UNIQUE
APPROACH
Since 1987, Project for Public Spaces has provided assistance to public market projects in more
than one hundred cities and towns in both the U.S. and internationally. The goal of our
technical assistance program is to transfer market skills to participating market sponsors,
managers, and community development officials. These projects typically engage local
stakeholders in a collaborative visioning process, as well as provide concrete technical assistance
on market design and operational issues.
PPS's brings its strong Placemaking approach to all of its market project,to ensure that public
market become more than just a place to buy food or local products, but a inviting and active
gathering place for the community.
The PPS markets team is well-versed in and highly capable of performing site analyses, including
how to combine markets with multiple uses; market design and placemaking; market and economic
analyses and product mix determinations; merchandising and marketing; parking, loading and
servicing issues; and developing management,operational and leasing structures.
In 1995, PPS co-published with the Urban Land Institute (ULI)the definitive work on developing
and improving public markets, Public Markets and Community Revitalization. PPS have been
building on that work with new tools and research ever since. PPS has also sponsored ine
international conferences on public markets, most recently in Barcelona in 2015. In addition to
these publications and conferences, PPS also holds its popular"How to Create Successful
Markets" in New York City,training hundreds of public market sponsors, practitioners,and
developers in the details of bringing a project from concept to opening day,and creating a
sustainable, economically viable public market in the process.
In recent years, PPS has also played a role in shaping both public and private funding for public
markets. Notably, our work in 2002-2008 with the Ford and W.K. Kellogg Foundations generated
over$3 million dollars for advancing farmers markets and public markets as a community
development strategy.
Another hallmark of PPS' public market experience is our ability to negotiate and forge successful
partnerships, engaging wide varieties of stakeholders. We help develop new partnerships between
community development organizations, public health agencies and community entities. Overall,
PPS encourages diverse sets of stakeholders to work together towards common goals,and we
provide the tools and strategies to make project happen.
5
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David O' Neil
SENIOR DIRECTOR, PUBLIC MARKETS
Phone: 215.482.5130
Email: davidkoneil(averizon.net
David O'Neil is widely recognized as one of the nation's foremost experts in the management and development of
public markets and rebuilding local economies.He is the former General Manager of the Reading Terminal Market
in Philadelphia,where he directed the overall market revitalization for ten years.
After Reading Terminal Market,he traveled the ancient trade routes of Asia,studying markets in cities and remote
areas,walking over a thousand miles. For nearly 15 years,he has worked with PPS to provide technical assistance
with regard to development and operation of public markets and farmers markets. He has been a consultant to over
two hundred historic and new market projects in the United States,Canada,New Zealand,Africa and Europe,
ranging from small neighborhood farmers markets to major public market halls and market districts.
He is an experienced trainer in market operations and development. He was an instructor for the Neighborhood
Reinvestment Corporation,teaching a course in market development,and co-instructs PPS's training course,"How
to Create Successful Markets."
One of the key elements in any market venture is working with would-be entrepreneurs to develop small-scale
businesses that work in markets. He has worked successfully with many vendors and farmers who had no previous
entrepreneurial experience.
Mr.O'Neil was a contributing writer and advisor to the PPS/Urban Land Institute book"Public Markets and
Community Revitalization"published in 1994.He completed"Reading Terminal Market,An Illustrated History"
published by Camino Press in 2003. He has the world's largest collection of market documents and photographs
and has lent or donated parts of his collection to museums,periodicals,authors and TV programs.
For PPS,he has co-directed six consecutive International Public Market Conferences:Philadelphia(1996);Pike Place
Market in Seattle,WA and Granville Island Market in Vancouver,BC (1998);New York (2002);Washington DC
(2005);San Francisco(2009) and Cleveland(2012). Conferences in 2002 and 2005 were both sponsored by the Ford
Foundation and the W.K.Kellogg Foundation.
Recent projects include markets in: Halifax,Baltimore,Boston,Anchorage,Brooklyn,Charleston,Flint,Detroit,
Kingston(Ontario),Cleveland,and Trenton.
EDUCATION
University of Pennsylvania,Bachelor of Arts,1977
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NewBo City Market Feasibility Study
Cedar Rapids, IA (2009- Challeirige
2010) In 2008 Cedar Rapids was hit with a massive flood that devastated 10 square miles of the city's
downtown. After the disaster, a group of concerned citizens retained PPS to help create a new public
CUlent market to bring life back to the city's core with the hope that it might become a regional destination.
Cedar Rapids City Market, Inc.
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PPS conducted an in-depth analysis of the local food supply and buying power and used detailed site-
selection criteria to recommend the best place for the market. PPS also facilitated a well-attended
vendor informational meeting and conducted a survey to gather feedback from potential vendors and
customers. From this feedback, PPS produced a program of uses and activities ensuring year-round
activity sustained by community buy-in.The plan for the new market consisted of several
complementary elements, including a central Market House and a Market Yard with activities, because
indoor markets often perform better with a flexible, well-programmed outdoor space. Plans for the
public market also included strategies to keep it open throughout the year, such as on-site production
for a bakery and coffee roaster as well as restaurants, wholesale distributors, and a commercial
kitchen.
Outc:ornes
The year-round public market opened in October 2012 at the site of a former warehouse and is the
cornerstone of the flood-impacted NewBo neighborhood.The centerpiece of this$4.25 million project is
the Rotary Hall which features over 20 permanent tenants, space for temporary food and high-end
craft vendors, an event space, commercial kitchen and a soon to be completed distribution space.
Rounding out the public market,following PPS'recommendations, is an outdoor area with room for
over 150 seasonal vendors and other activities.The silver lining in an otherwise disaster,the NewBo
City Market has created a central meeting place for downtown Cedar Rapids and has already started
$P A c,s VIII „f`,,,, . , the revitalization of its neighborhood.
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I....eft:Grocery. stall at the Mere Street Market( Right: PPS rendering of external improvements to the Mere Street Market
Moore Street Market
Brooklyn, NY (2008 - Challenge
2009) Once a major mainstay of commerce and community in the East Williamsburg neighborhood of
Brooklyn,the Moore Street Market had trouble maintaining full vendor occupancy in modern day New
Client York. Congresswoman Nydia M. Velazquez, concerned about the threat of closure, contacted PPS to
U.S Department of Commerce: help revitalize the unique cultural and economic resource.
Minority Business Development
Agency Process
In order to analyze the market's current situation and prepare a comprehensive management plan,
PPS worked extensively with the City University of New York(CUNY)to create a social and historical
study of the market, and with Bay Area Economics to develop an impact study concerning its current
and potential economic impact. Additionally, PPS also studied the buying power of the neighborhood
as a whole, concluding that the geographic area held a great deal of economic potential from a
diverse local population.To involve the community in the visioning and planning for the market, PPS
created an Advisory Group, consisting of local politicians, market vendors,the local Business
Improvement District, and neighbors of the market. PPS also hosted a Placemaking workshop where
more than 100 local residents provided feedback on the product and activity mix they'd like to see at
the market in the future. Based on these results, along with an economic analysis, PPS produced both
short-and long-term management plans for the market.
Outcomes
To build revenue for the market and to reintroduce the market up to a wider audience, PPS
recommended a new lay-out for the market,which included more stalls and turning the market"inside-
out"through the creation of a 7,000 square foot public plaza. To take the lessons from Moore Street
°r tlllllllllllllllf" IIC' nationally, PPS developed and produced a vendor handbook, designed to help minority vendors start
PUBIIC
their own small business at a public market. The handbook is available on PPS's website in both
��dirr�� English and Spanish.
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I....eft: Recommended site of the future public,market I Right: PPS site plan for indoor and outdoor market activity
Business Plan for Madison ' s Public Market
Madison, WI (2013 - Challenge
2015) Madison,Wisconsin is a national leader in citywide support of local food through an extensive
neighborhood network of farmers markets(including the largest in the country), strong membership in
Client Community Supported Agriculture(CSA) programs,farm-to-table restaurants, a burgeoning wholesale
City of Madison local food hub, a shared-use kitchen and thriving food cooperatives. Building on these efforts,
Madison has long sought a permanent home for local food—a public market. In October 2013 the city
and its Local Food Committee(LFC), retained PPS to complete a three-phased process culminating
in an achievable business plan for a new public market.
Process
PPS's three-phased process was based on an analysis of the three elements of a successful public
market—products, people and place.The first phase determined the feasibility of and concept for a
permanent public market and included surveys and focus groups with potential vendors and
customers, as well as interviews with regional food systems professionals. In Phase Two we reviewed
three potential neighborhood-based sites and recommended one based on its sales potential, vendor
preferences,the availability of real estate, and the potential to create a market district and an
extraordinary public space. Finally, in Phase Three, PPS facilitated a Placemaking workshop at the
recommended site and worked with a local architect to develop three design/layout options for the site
along with a cost estimate for each.Throughout the entire process we worked with city staff to engage
residents in a rigorous public engagement process through a series of meetings and workshops.
Outcomes
PPS delivered a final business plan to the City of Madison that was the result of extensive research,
analysis and design efforts combined with our multi-decade experience and knowledge of public
I�IRGIECT market management and operational requirements. Upon approval from the City's Common Council,
I the City will use this business plan to set up a Transition Team who will move the project forward from
concept into reality.
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I....eft: Renovated entrance of the French Market( Right: Renovated interior of the French Market
French Market
New Orleans, LA Challenge
(2004 - 2005) Since 1791,the food available at New Orleans's French Market has represented the diverse mix of
ethnicities and culinary traditions that symbolize New Orleans' culture.As the City's French Quarter
Client neighborhood became increasingly touristy,the market struggled to maintain its character. Vendors
The French Market Corporation selling t-shirts and mini-statuettes had begun to define the market more than the local food producers
and crafters who started it.
Process
The French Market Corporation hired PPS to develop a plan for physically renovating and
remerchandising the market as a local institution. The French Market Corporation conducted
customer and intercept surveys of local residents in the market to make sure their opinions were
represented.Through workshops and interviews with two New Orleans architecture firms, community
and political representatives on the market's board, and vendors, PPS worked with the French Market
Corporation to define a re-visioning plan and developed the idea for a Farmers'Shed to incorporate
local foods and producers back into the market by providing them with a specific place to sell their
goods. Other plans focused on re-designing lighting, storage, and points of entry.
Outcomes
The market has been renovated end to end—transforming parking areas into plazas,
remerchandising the food shed, improving circulation, adding new signage and giving the overall
market a fresher appearance. In 2014,two weekly fresh food markets opened on Wednesdays and
Saturdays featuring fresh, local food.
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PUBLIC
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I....eft:Main Street Farmers Market in 2009( Right: Elevations for the new market pavilion
Main Street Farmers Market
Washington, PA (2009 Challenge
- 2010) Due to the success and popularity of The Main Street Farmers Market,the Pittsburgh History&
Landmarks Foundation sought to build on local support and expand the market. PPS was hired to
Client explore the feasibility of expanding and relocating the market to Wiley Station, a historic train station
Pittsburgh History&Landmarks just down the road from the market's site.While the train station's owner was amendable to housing a
Foundation and The Main Street public market, the location of the station and its size posed several challenges for the potential
Farmers Market, Inc. expansion.
Process
The project began with a site visit in which PPS visited the existing farmers market, evaluated the
train station and its location in town and facilitated a stakeholder workshop to determine what
residents wanted and needed in a public market. PPS also conducted research including vendor and
customer surveys, an evaluation of potential sales for an expanded year-round market, and a gravity
model for determining the viability of the historic Wiley Station site. Building off of the idea of
expanding the original market, PPS identified several alternatives to creating an indoor, year-round
public market that could still grow the market successfully into the future, including creating a market
store that sells goods from local farmers year-round and building a shed at the current market location
which could be used for the market, parking and other community events.
Outcomes
In the end, although PPS concluded that an indoor, year-round public market might not be
economically feasible in Washington and that the Wiley Train Station was not the best location for an
expanded market, market organizers did move forward with plans for constructing a permanent
tlllllllllllllllf" IIC' market shed instead. In spring 2015, construction on the 15,000 square foot pavilion began which will
provide festival space for the farmers market and a wide variety of community events. When not in
��dirrll IIIIIIII use the pavilion will provide lighted, sheltered public parking for customers of area businesses.
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I....eft:Grocery. stall at the Mere Street Market( Right: PPS rendering of external improvements to the Mere Street Market
Moore Street Market
Brooklyn, NY (2008 - Challenge
2009) Once a major mainstay of commerce and community in the East Williamsburg neighborhood of
Brooklyn,the Moore Street Market had trouble maintaining full vendor occupancy in modern day New
Client York. Congresswoman Nydia M. Velazquez, concerned about the threat of closure, contacted PPS to
U.S Department of Commerce: help revitalize the unique cultural and economic resource.
Minority Business Development
Agency Process
In order to analyze the market's current situation and prepare a comprehensive management plan,
PPS worked extensively with the City University of New York(CUNY)to create a social and historical
study of the market, and with Bay Area Economics to develop an impact study concerning its current
and potential economic impact. Additionally, PPS also studied the buying power of the neighborhood
as a whole, concluding that the geographic area held a great deal of economic potential from a
diverse local population.To involve the community in the visioning and planning for the market, PPS
created an Advisory Group, consisting of local politicians, market vendors,the local Business
Improvement District, and neighbors of the market. PPS also hosted a Placemaking workshop where
more than 100 local residents provided feedback on the product and activity mix they'd like to see at
the market in the future. Based on these results, along with an economic analysis, PPS produced both
short-and long-term management plans for the market.
Outcomes
To build revenue for the market and to reintroduce the market up to a wider audience, PPS
recommended a new lay-out for the market,which included more stalls and turning the market"inside-
out"through the creation of a 7,000 square foot public plaza. To take the lessons from Moore Street
°r tlllllllllllllllf" IIC' nationally, PPS developed and produced a vendor handbook, designed to help minority vendors start
PUBIIC
their own small business at a public market. The handbook is available on PPS's website in both
��dirr�� English and Spanish.
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I.eft: I lub City Farmers'Market in 2006( Right:Opening Day at the new I lub City Farmers'Market Pavilion in I larve>t Park
Hub City Farmers ' Market
Spartanburg, SC Challenge
(2005 - 2006) The City of Spartanburg,whose fate was once married to the textile industry, is undergoing a revival
with new businesses, a walkable downtown and a strong commitment to creating healthy citizens. In
Client spite of this positive momentum,two attempts at operating a farmers market had already failed in the
Spartanburg Nutrition Council city. In spite of this,the Spartanburg Nutritional Council wanted to restart the market in the best
possible site, and with the support of the Mary Black Foundation, the Council retained PPS to select a
new site for the market and prepare a plan to create an economically viable, community gathering
place promoting healthy eating and lifestyles.
Process
PPS conducted a training program for local stakeholders on developing and operating a successful
market, assessed multiple sites for the market and recommended the site at the historic train depot
near downtown, hosted a Placemaking workshop at this site to get input from the community and
future vendors and prepared a business plan for the market, which included a suggested
merchandising mix, a start-up budget and operational pro forma.
Outcomes
The market opened in the summer of 2006 and became an immediate success. Over 750 people
came to the opening day and vendors sold out. Since then, the market has grown steadily in terms of
vendors, customers and programs, including the development of mobile markets and a Wednesday
Downtown Lunch Market. In 2014,the market expanded into nearby Harvest Park through a joint
effort between the Northside Development Group, the City of Spartanburg, the Butterfly Foundation
and the Hub City Farmers' Market. The new location features a pavilion and 1/2 acre urban farm
FIROJEC 14 X114° managed by the market, as well as a cafe and food store selling produce from local farmers. The
PUBLICmarket plans on expanding into year-round operation in 2016.