Prepared by: The Legislative Governmental Mall Commission - Phoenix, Arizona June 1997
Capitol District
Development Guidelines
LEGISLATIVE GOVERNMENTAL MALL COMMISSION
The Governmental Mall Commission was established by the Legislature in 1985 in order to develop and maintain a
comprehensive long- range plan for the development of the Governmental Mall area. The Commission is composed of
representatives from State, County and City government as well as from the general public.
Barry Starr, Chairman
Thomas Knapp, Acting Chairman
Senator David Petersen
David Richert
Polly Rosenbaum
Susanne Rothwell
Representative Tom Smith
Members:
Kent Bosworth
LeRoy Brady
John Clements
Frank Dubasik
Jill Herberg- Kusy
State of Arizona
Department of Administration
General Services Division
City of Phoenix
Planning Department
Maricopa County
Department of Planning and Infrastructure Development
Prepared by:
ABLE OF CONTENTS
IST OF FIGURES
History of the Plan
Boundaries
Purpose of the Plan
Goals and Objectives
Planning and Development Concepts
Current Land Use
Proposed Land Use
Circulation
Building Design Guidelines
Development Review Process
Amendment Procedure
Boundary Map
Existing State Buildings
Historic Properties
Land Use Plan
Building Setback Plan
Building Height Plan
Pedestrian Walkways in Surface Parking
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Capitol District Development Guidelines 1
Map 1 - Boundaries
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The Governmental Mall Urban Design Plan
was subsequently adopted by the Governmental
Mall Commission in June of 1989. The plan
contained guidelines for new development
which assisted the Commission and City staff
in reviewing development proposals in the area.
In 1995, State legislation made a major change
in the boundaries of the Governmental Mall. In
early 1996, the Commission took on the task of
revising the urban design plan in order to: 1)
coincide with the new boundaries, and 2) make
the plan easier for both the public and staff to
use. The 1989 plan was the basis for this
revised document.
History of Planning in the Area
The first major study of the Governmental Mall
area was undertaken in 1957. In 1967, the
Arizona Legislature created a coordinating
committee of representatives from the State,
Federal, City and County governments to
prepare plans for the governmental corridor
alongWashington Street from the City- County
complex to the State Capitol. The State, City
and County governments affirmed their support
for a Governmental Mall plan and concept in
1969.
Several early Governmental Mall plans
concentrated on: 1) lining the north side of
Washington Street and the south side of
Jefferson Street with government buildings, and
2) maintaining large tracts of open space
between the two streets creating an open mall
east of the capitol building. ( Hence the term,
“ Governmental Mall”.)
In 1985, the Legislature created the
Governmental Mall Commission comprised of
representatives from all three jurisdictions as
well as the U. S. Congressional district. As
directed by State law, this Commission
reviewed development plans and initiated an
intensive planning effort for the area. The
Commission hired planning and transportation
consultants who developed plans with the help
of the community and City staff. An extensive
public participation effort elicited the issues and
concerns of those living and working in the
area and transformed them into a set of goals
and objectives for future development.
Boundaries
The Governmental Mall is defined by State law
as the area between 7th and 19th Avenues, from
the Harrison Street alignment on the south to
Van Buren Street Street on the north including
the lots on the north side of Van Buren Street.
( See Map 1 - Boundaries)
2 Capitol District Development Guidelines
C apitol District
Development Guidelines
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Planning and Development
Concepts
1. Major office and other people- intensive
uses should be located along the
Washington/ Jefferson corridor in order to
facilitate and focus pedestrian activity as
well as to improve transit opportunities.
2. Land uses in the area should be
compatible. Future land uses should be
developed in a manner that has a positive
impact on neighboring uses.
3. Landscaping and pedestrian access should
be coordinated in the entire area with
particular attention given to linking these
elements among adjacent buildings.
4. The visual focal point of the area should
be the State Capitol Building.
5. Open space in the area should be
designed to preserve, enhance and
increase its use by the public.
6. The historic character and structures of
theWoodland Historic District should be
preserved and enhanced through
rehabilitation and adaptive use.
7. The concentration of homeless services
within the area should be reduced.
Purpose of the Development
Guidelines
Goals and Objectives
Present the expectations of the
Governmental Mall Commission in
reviewing future development
proposals.
Establish criteria for review and
approval of development proposals.
1. Establish an orderly, planned environment
for the area.
2. Provide for a diversity of development.
3. Plan and design an environment that will
discourage crime, provide alternative
location( s) for the homeless outside the
area, and discourage land uses and
conditions which cause high noise levels or
emit noxious odors.
4. Make the area more attractive and pleasant
for residents, workers and visitors.
5. Improve the economic vitality of the area
by making the area more interesting and
dynamic.
Capitol District Development Guidelines
4 Capitol District Development Guidelines
Current Land Use
The State of Arizona Capitol complex
dominates the Governmental Mall. Land uses
within the Governmental Mall are varied and
include: offices, parking, commercial,
industrial, warehouse, museums, open space,
residential, and social services. Vacant lots and
abandoned structures are also scattered
throughout the area.
The Mall begins at Seventh Avenue,
immediately west of the downtown Phoenix
City and Maricopa County government
complexes. Industrial land uses are generally
located near the Southern Pacific Railroad
along the southern boundary of the Mall. West
of the Mall is a residential area ( west of 19th
Avenue). The northern boundary of the mall is
composed of commercial development along
Van Buren Street Street, and the University
Park residential neighborhood.
The State Capitol complex contains over forty
buildings that house 8,500 employees. The
majority of State office buildings are located in
the area around the Capitol Building and
Wesley Bolin Plaza. In addition, State office
buildings are located alongWashington and
Jefferson Streets from 15th Avenue east to 11th
Avenue.
Private office space can be found directly
across 18th Avenue from the Executive Tower
and in several dispersed locations. There are
also three credit unions, which primarily serve
State employees.
The State has constructed two major buildings
since the completion of the 1989 Governmental
Mall Urban Design Plan. The Courts Building
Office Buildings
( See Map 2 - Existing State Facilities)
at 15th Avenue andWashington added 70,000
square feet and the DES building at 18th
Avenue and Jefferson added 48,000 square feet.
The State also converted the Shriner’s Hall at
15th Avenue andWashington into the Mines
and Mineral Museum.
Most of the State buildings are served by off-street,
surface parking. The State owns about
35 parking lots and three parking garages.
There are over 8,500 spaces available in these
facilities.
The majority of commercial uses are located
along Van Buren Street west of 15th Avenue.
These uses include restaurants, fast food
outlets, used car dealers, a convenience store, a
laundromat, an auto repair shop, a medical
clinic, and a bank. Additional commercial uses
are also located in the area east of 13th Avenue
and south of Jefferson Street.
The area south of Jefferson Street and east of
Parking
Commercial
Industrial and Warehouses
13th Avenue contains most of the existing light
industrial uses. These include a machine shop,
a wood turning plant, a brake supply shop, a
lumber and building supply wholesale yard, and
a bus repair facility. This area also contains the
social service agencies that provide food and
temporary shelter.
The State has numerous support facilities
including warehouses and two motor pool
facilities, located south of Jackson Street
between 15th and 19th Avenues.
The majority of the open space in the
Governmental Mall is owned and maintained
by the State. The Capitol grounds, Wesley
Bolin Plaza and the Carnegie Library grounds
are the primary open spaces. Woodland and
University are two parks maintained by the
City. Woodland Park is a narrow linear space
located between 10th and 15th Avenues on the
south side of Van Buren Street. University Park
abuts the northern edge of Van Buren Street
between 10th and 12th Avenues.
Open Space
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Map 2 - Existing State Facilities
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1 - State CapitalWestWing
2 - Capital Bldg. ( 1918- 38 Addn.)
3 - Capital Museum
4 - Senate Bldg.
5 - House of Representitives
6 - Wesley Bolin Memorial Park
7 - Risk Management, DOA
8 - Arizona Power Authority
9 - Health Services Bldg.
10 - Joint Legislative Budget Office
11 - Revenue Bldg.
12 - 1688 Office Bldg.
13 - 1624 Office Bldg.
14 - 1616 Office Bldg.
15 - Health Laboratory
16 - Data Center
17 - 1512 Bldg.
18 - 1400 Bldg.
19 - 1300 Bldg.
20 - Corporation Commission
21 - Evans House Office
22 - Industrial Commission Bldg.
23 - Carnegie Library
24 - Law Bldg.
25 - Capital Center Bldg.
26 - State Courts Bldg.
27 - Education Bldg.
28 - Corrections Bldg.
29 - 1645 Office Bldg.
30 - 1717 DES
31 - 1720 DES
32 - 1789 DES
33 - Motor Vehicle Bldg.
34 - State Personnel Bldg.
35 - 1840 Maintenance Bldg.
36 - General Services Admin. Bldg.
37 - ADOT Materials Lab
38 - ADOT Admin. Bldg.
39 - ADOT Purchasing Bldg.
40 - ADOT Engineering Bldg.
41 - ADOT General Operations
42 - Surplus Property Facilities
43 - Motor Pool Facilities
Cemetery
Cemetery
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Capitol District Development Guidelines
Residential
Most residential land use within the
Governmental Mall is concentrated in the
Woodland Historic District, in the area bounded
by Van Buren Street on the north, Adams Street
on the south, 9th Avenue on the east and 16th
Avenue on the west. This area is expected to
remain as mixed use residential and
commercial.
Museums and Historic Properties
The State Capitol Building and theWesley
Bolin Memorial Plaza serve as the centerpiece
of the State Capitol Complex. The
Governmental Mall also contains the Mines and
Minerals Museum and the Hall of Fame
( Carnegie Library). These facilities,
particularly the Capitol Museum, attract large
numbers of school groups.
Several historic cemeteries, Old City Cemetery,
Rosedale and Porter, are located between
Jefferson and Harrison Streets from 15th to
13th Avenues. The City of Phoenix has
relocated the historic Smurthwaite House to
this area. ( See Map 3 - Historic Properties)
Map 3 - Historic Properties
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1 - Arizona State Capitol Building and Museum
2 - Arizona State Office Building/ Capitol Annex
3 - El Zaribah Shrine/ Mines and Minerals Resources Building
4 - Woodland Historic District
5 - J. M. Evans House
6 - Grace Court School
7 - Carnegie Library and Arizona
Hall of Fame Museum
8 - West End Hotel
9 - Phoenix Pioneer Military and
Memorial Park
10 - Smurthwaite House
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6 Capitol District Development Guidelines
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Isolated residential uses are scattered in the area
south of Jefferson Street and east of 12th
Avenue. Central Arizona Shelter Services
( CASS), located at 12th Avenue and Madison
Street, shelters up to 400 homeless people each
night. Other social services and eating facilities
serving needy and homeless people are located
in the area.
Proposed Land Use
Map 4 - Land Use Plan is a general plan of the
uses proposed for the area.
Currently, State office buildings and State
facilities associated with the Capitol are the
predominant land use in the Governmental
Office
Mall. The State also maintains various support
services such as parking, motor pools and
maintenance facilities. The State owns vacant
and underdeveloped land in the area which is
planned for future expansion. Office buildings
may be constructed on this land as funding
becomes available to the State. Consequently,
State facilities will continue to be the major
land use in the area and that role is expected to
expand in the future.
Map 4 - Land Use Plan Proposed Uses
* Other uses may be permitted per City of Phoenix zoning
Residential/ Commercial
Commercial/ Industrial
Office
Open Space
Commercial/ Office
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Capitol District Development Guidelines
The State of Arizona Department of
Administration has developed a list of five
building sites that are planned in the
Governmental Mall. The timing of the
construction of any of these buildings is
dependent upon legislative approval for the
funding. Each building would include a
parking structure. Size of the buildings are
expected to range between 72,000 and 340,000
square feet.
The five planned sites are:
Private development is also appropriate in the
area. New private development should also
follow the guidelines provided in this document
to ensure quality and consistency as well as to
promote improved pedestrian access,
convenience, comfort and safety.
Retail and other commercial uses should be
encouraged to expand their role in the area,
particularly since these uses are needed to
support the many office workers in the
Governmental Mall and residents in
Between Washington Street and Adams
and between 12th and 10th Avenue
Between Washington and Jefferson and
between 18th and 19th Avenues
Between Washington Street and
Jefferson Street east of 10th Avenue
Commercial/ Office
Between Washington Street and
Adams Street to the west of the Mines
and Minerals Museum ( 15th Avenue)
The northeast corner of Adams Street
and 17th Avenue
surrounding neighborhoods. Generally, retail
uses that have traffic impacts should be located
on major streets such as Van Buren Street.
Locating retail and other support services on
the ground floor of parking garages and other
buildings improves the pedestrian environment
and should be encouraged.
Industrial zoning and various commercial and
industrial uses currently exist in the area
generally south of Madison Street. Within this
limited area, industrial development will
continue to be an important component. Future
industrial development should be compatible
with the nearby offices, and include features
which support the objective of establishing a
pleasant pedestrian environment.
The restoration and revitalization of the
Woodland Historic District to a mix of
commercial and residential uses should be
promoted. To the extent possible, the existing
historic houses in the area should be
rehabilitated. Within the limits of City zoning
regulations, these buildings may be used as
Commercial/ Industrial
Residential/ Commercial
offices while maintaining the generally
residential character of the area. A zoning
overlay may also be put in place to allow
carefully controlled commercial activities
which will enhance the distinctive urban
character of this historic neighborhood.
Open space should continue to be an important
component of the Governmental Mall. Wesley
Bolin Plaza and the Capitol Building grounds
should remain the focal point for the area.
Woodland Park, University Park, and Carnegie
Library should be preserved as open space and
efforts should continue to make them accessible
to the public without creating negative impacts
on surrounding residents and businesses. New
development should incorporate landscaped
areas and open space for its own users and
provide pedestrian pathways which link with
adjacent sites to create an integrated pedestrian
network.
Larger setbacks along the major east- west
routes where pedestrian activity is encouraged
should be provided as indicated on
.
Open Space
Map 5 -
Building Setback Plan
8 Capitol District Development Guidelines
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Circulation
Interstate Freeways
Streets
The Governmental Mall is located in proximity
to two interstate highways. The east/ west I- 10
inner- loop is located to the north of the
Governmental Mall and the north/ south I- 17
Black Canyon Freeway is located to the west.
Access to the area is provided by several major
and minor streets.
Washington Street provides one way access
westbound from downtown Phoenix. This
street flows directly into Adams Street west of
15th Avenue. Adams Street provides the
principal westbound access to the I- 17 freeway.
Jefferson Street is the major eastbound one- way
street that provides access from the I- 17
freeway through the Mall to downtown. These
major multi- lane, one way streets support
through traffic in the mall, and allow relatively
easy automobile access into the Mall area.
Current traffic signalization supports the rapid
east/ west movement of motor vehicles.
However, this street pattern also creates
constraints to north/ south pedestrian activity.
Access into the Governmental Mall from the
I- 10 inner- loop is provided by 7th Avenue on
the east end of the Mall and 19th Avenue on the
west. Seventeenth and 15th Avenues bisect the
mall. Both of these streets provide two lanes of
traffic in both the north and south directions.
The eastern half of the Governmental Mall has
numerous small blocks bounded by minor
streets from 7th Avenue to 15th Avenue. This
street pattern has remained virtually the same
since the 1950s, and existing infrastructure is
tied to this block and street pattern. These
factors have inhibited the development of larger
office and commercial structures. The street
pattern is also an impediment to continuous
pedestrian activity. Numerous intersections
lead to many pedestrian and motor vehicle
conflicts.
Railroad rights- of- way, which define the
southern and partial western boundaries of the
Governmental Mall, significantly influence
land use and circulation in the area. The main
east/ west line of the Southern Pacific Railroad
parallels the Harrison Street alignment. This
line inhibits interaction with land uses south of
the mall. A north/ south branch line, which
connects the Santa Fe to the Southern Pacific,
parallels 19th Avenue.
The Governmental Mall is served by local and
express bus service by Valley Metro. Local bus
routes include service alongWashington Street
and Jefferson Streets, 7th, 15th, and 19th
Avenues. These routes provide service to and
from the downtown bus terminal which allows
connections with other bus routes. Numerous
express busses operate to and from the Capitol
during the morning and evening rush hours. A
downtown shuttle also serves the Mall from
11: 00 a. m. to 2: 00 p. m.
The Maricopa Association of Government’s
Regional Bikeway system traverses the
Governmental Mall. A designated bikeway
runs along theWashington Street/ Adams Street
corridor and along Jefferson Street.
Railroads
Transit
Bikeways
Capitol District Development Guidelines
10 Capitol District Development Guidelines
Building Design Guidelines
The purpose of these building design guidelines
is to encourage quality and consistency and not
to impose a requirement for a specific
architectural style for the Governmental Mall.
The guidelines emphasize the need for
improved pedestrian access, convenience,
comfort and safety.
The guidelines are divided into the following
categories: All Uses ( excluding residential),
Office/ Commercial, Industrial, Parking
Structures, Surface Parking, and Signs.
1. All development in the area should, at the
minimum, meet City of Phoenix
development standards. Certain
Governmental Mall design standards may
exceed City requirements. The more
restrictive standard will govern.
2. City of Phoenix setbacks and height
limits will be required except in those
areas indicated in
and
.
3. Architecturally and historically
significant buildings, structures, and
districts should be preserved and
enhanced to promote a link to the past.
4. For safety and comfort of the pedestrian,
sidewalks should be separated from
traffic by an 8 foot width. This 8 foot
buffer may include landscaping, a bicycle
lane and/ or on street parking.
All Uses ( excluding residential)
Map 5 - Building
Setback Plan Map 6 - Building
Height Plan
5. New or replacement sidewalks should be
a minimum of 6 feet wide; new or
replacement sidewalks onWashington
Street and Jefferson Streets, and on
Adams Street west of 15th Avenue should
be a minimum of 8 feet wide.
6. Exterior building colors may be reviewed
and approved at the discretion of the
Commission.
7. Mechanical and service yards should be
screened from public view and away from
upper floor window view. All walls and
opaque gates should match the
architectural character of the project.
8. Roof mounted mechanical equipment
should be screened from ground level
view and from the view of existing or
planned higher buildings with parapets.
Sight line studies relative to this issue
should be included in the schematic
design package.
9. Loading docks should be located to face
away from public streets or open spaces
and should be screened from view from
streets and pedestrian areas.
Map 5 - Building Setback Plan
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Office/ Commercial
1. Buildings should be designed so that the
primary entrances are easily identifiable
and provide access to major pedestrian
ways and parking. Main building entries
should be clearly defined through the use
of special architectural features.
2. The exterior ground floor architectural
treatment should relate to pedestrian scale
and the adjoining streetscape
development where applicable.
3. The use of arcades, awnings, and other
shade features is encouraged near streets
and other pedestrian ways.
4. Major buildings should incorporate retail
uses such as shops and restaurants into
the ground floor.
5. Building elevations should emphasize
shade and shadow, discouraging a flat
facade and glass curtain wall
construction.
6. Building surfaces should have relief or
pattern.
Industrial Uses
1. All industrial uses must be conducted
entirely within enclosed structures.
2. Fences or walls should be wrought iron,
or decorative block wall, or a
combination of the two. Fences or walls
shall be placed behind a landscaped area.
( Landscaped area shall be adjacent to and
visible from the street.)
Signs
Signs should assist a visitor in identifying
buildings, building complexes and major
tenants. The address and name or function of
the building should be easily visible from the
adjacent roadway.
Capitol District Development Guidelines
Map 6 - Building Height Plan
2 Story maximum
4 Story maximum
6 Story maximum
8 Story maximum
Exception
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12 Capitol District Development Guidelines
Parking Structures
1. Parking structures should incorporate
retail and office uses into the ground floor
along pedestrian corridors.
2. Parking structure facades should match
the architectural materials, forms and
details of the principal corresponding
building or buildings.
3. Minimize the number of entrances and
exits to and from parking structures along
Washington Street and Jefferson Street.
Surface Parking
1. Surface parking should be screened by
low decorative walls, trees, and
landscaping which may include berming.
A minimum landscaped separation of 5
feet is required between surface parking
and sidewalks.
2. Surface parking lots should include trees
to provide an attractive landscape and
shade for the pedestrian.
3. Provide parking lot street lighting at a
minimum of one foot candle.
4. If separate from streets or parking lots,
walkways should be illuminated at a
minimum of two foot candles.
5. Pedestrian walkways should be provided
in surface parking as shown in the
illustration to the right.
Building Building
PARKING
PARKING
STREET STREET
PARKING
PARKING
PARKING
PERPENDICULAR TO SIDEWALK
If parking rows are perpendicular to the building entrance,
provide one walkway per four rows of parked vehicles.
PARKING
PARALLEL TO SIDEWALK
If parking rows are parallel to the building entrance,
provide one walkway every ten spaces.
10 Spaces
2 TO 4 ROWS
OF PARKING
PEDESTRIAN
SIGNAGE
Pedestrian Walkways
Capitol District Development Guidelines 13
Phoenix Development Services
Department with his request for project
review which will allow the project to
resume the normal City review process
for building permit approval.
Amendment Procedure
This document may be amended upon approval
of the Governmental Mall Commission. Any
person may request a change by submitting the
proposed amendment in writing to the
Commission. Members of the Commission
may also propose changes during Commission
meetings. The proposed amendment will be
forwarded to the following agencies for their
review and comment:
Arizona Department of Administration,
General Services Division
City of Phoenix Planning Department
Maricopa County Office of Planning &
Infrastructure Development
These offices will be given at least 30 days to
review the proposal and submit comments to
the Commission. After it is submitted, the
proposed amendment will be listed on the next
available agenda of the Commission and may
be discussed by the Commission at that
meeting. Action on the request ( approval and
adoption, modification and adoption, or denial)
may take place no sooner than the following
meeting of the Commission. The public and
any interested parties are encouraged to attend
and provide their views and opinions during the
public meetings.
The review process includes the following
steps:
1. The developer/ owner should contact staff
of the Governmental Mall Commission to
be placed on the next available meeting
agenda.
2. Building plans should be prepared in
accordance with the Capitol District
Development Guidelines as well as City
of Phoenix building and zoning
regulations.
3. The developer/ owner should attend the
scheduled Commission meeting during
which he or she will explain the project to
the Commission ( displaying relevant site
plans and/ or renderings, etc.) and answer
any questions from the Commission.
4. The Commission may recommend
approval, approval with some
modification( s) of the plan, or denial.
The Commission may also ask for more
information and hear the request again at
a later meeting.
5. If the Commission makes a determination
to approve the request, minutes of the
meeting and a copy of a written approval
form shall be provided to the
developer/ owner.
6. The developer/ owner shall submit a copy
of the written approval form to the City of
( The developer/ owner should
contact the Governmental Mall
Commission as soon as possible in this
process to avoid undue delay. The
Commission generally meets monthly, but
at times has met on an irregular
schedule.)
Development Review Process
The major objective of the Commission is to
improve the overall environment of the
Governmental Mall by improving the quality
and compatibility of future development.
Legislation was approved that gave the
Commission the authority to review and
approve proposed development prior to the
issuance of building permits. In practice, this
means that those who propose to develop
buildings in the area that are valued over a
certain amount are required to submit their
plans to the Commission for review.
Commission members use the goals, objectives
and design guidelines included in the Capitol
District Design Guidelines to evaluate the
project and make a decision which is forwarded
to the City.
State Law requires the Governmental Mall
Commission to “ review and approve or
disapprove... requests for permission to develop
structures or sites or award construction
contracts for new buildings or improvements
within the Governmental Mall.” This means
that, before the City can approve a building
permit for new development in the area, the
Governmental Mall Commission must review
and approve it. By policy, small projects with a
value of less than $ 25,000 are not formally
reviewed by the Commission.
Developers/ owners wishing to construct a
project with a value greater than $ 25,000,
should contact City staff in the Planning or
Development Services Department to
determine the current contact person for setting
the Governmental Mall Commission’s agenda.
How a Project is Reviewed
