It's all about pretext...
Well with most people it's about pretext. You need to have some way of legitimately beginning a conversation. NotMinus' suggestion about seating is a good one. You can also ask for the time or directions.
Or if something unusual or noteworthy occurs nearby you could comment on that, or ask their opinion.
Or if two people are talking, you can make a comment on their discussion.
In reality I believe most people don't mind being approached, in fact most people would be happy if somebody began a random conversation with them.
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