Report
to/Rapport au :
Ottawa Built Heritage
Advisory Committee
Comité consultatif sur le patrimoine bâti
d’Ottawa
and / et
Planning and Environment Committee
Comité de l'urbanisme et de
l'environnement
and Council / et au Conseil
Submitted by/Soumis par : Nancy Schepers, Deputy City
Manager, Directrice municipale adjointe, Infrastructure
Services and Community Sustainability, Services
d’infrastructure et Viabilité des collectivités
Contact Person/Personne-ressource : Richard Kilstrom,
Acting Manager/Gestionnaire intérimaire, Development Review-Urban
Services/Examen des projets d'aménagement-Services urbains, Planning
and Growth Management/Urbanisme et Gestion de la croissance
(613) 580-2424, 22379 Richard.Kilstrom@ottawa.ca
REPORT RECOMMENDATIONS
That the Ottawa Built Heritage Advisory
Committee recommend that Planning and Environment Committee recommend that
Council:
1.
Approve the application to alter 299
Soper Place according to plans submitted by Barry J. Hobin and Associates Architects Inc. received on
April 28, 2010.
2.
Issue the heritage permit with a
two-year expiry date from the date of issuance.
3.
Delegate authority for minor design
changes to the General Manager, Planning and Growth Management Department.
(Note: The statutory 90-day timeline for consideration of this
application under the Ontario Heritage
Act will expire on July 27, 2010)
(Note: Approval to Alter this property under the Ontario Heritage Act must not be construed to meet the requirements
for the issuance of a building permit.)
RECOMMANDATIONS DU
RAPPORT
Que le
Comité consultatif sur le patrimoine bâti d’Ottawa
recommande au Comité de l’urbanisme et de l’environnement de recommander à son
tour au Conseil :
1.
D’approuver la demande visant à
transformer la propriété située au 299, place Soper, d’une manière conforme aux
plans soumis par Barry J. Hobin and Associates Architects Inc. le 28 avril
2010.
2.
De délivrer le permis en matière de
patrimoine, qui expirera deux ans après la date de délivrance.
3.
De déléguer au directeur général du
Service de l’urbanisme et de la gestion de la croissance le pouvoir d’apporter
de légères modifications à la conception.
(Nota : Le délai réglementaire de 90 jours d’examen de cette
demande, exigé en vertu de la Loi sur le
patrimoine de l’Ontario, prendra fin le 27 juillet 2010.)
Nota : L’approbation
de la demande de modification aux termes de la Loi sur le patrimoine de l’Ontario ne signifie pas pour autant
qu’elle satisfait aux conditions de délivrance d’un permis de construire.)
BACKGROUND
299 Soper Place (Document 1) is located within the boundaries of the Rockcliffe Park Heritage Conservation District. The Rockcliffe Park Heritage Conservation District was designated in 1997 under Part V of the Ontario Heritage Act by the former Village of Rockcliffe Park. This report has been prepared because in a heritage conservation district City Council approval is required before major alterations to properties can proceed.
DISCUSSION
Recommendation 1:
299 Soper Place is located in the Rockcliffe Park Heritage Conservation District (HCD). The Rockcliffe Park HCD was designated for its cultural heritage value as an early planned residential community first laid out by Thomas Keefer in 1864. The district is also important for its historical associations with Keefer and his father-in-law, Thomas MacKay, the founder of New Edinburgh and the original owner of Rideau Hall. The picturesque nature of the village also contributes significantly to the cultural heritage value. The Statement of Heritage Character (Document 8) notes that today, the “Village of Rockcliffe Park is a distinctive community of private homes and related institutional properties within a park setting.”
This house was constructed in 1992, reusing the walls of the former stables of Birkenfels, a historic Rockcliffe Park estate. There have been a number of additions to the house since its construction and all additions have been in a similar style that is sympathetic to the original house. The property has been expanded to the north in recent years creating a large estate property reminiscent of other large estates throughout Rockcliffe Park (Documents 2 and 3).
The current proposal involves the demolition of the existing detached garage and indoor pool building located to the north of the original house. The new one and a half storey building will occupy the site of the existing garage but the orientation will be parallel rather than perpendicular to Minto Place. It will house a three car garage, recreational space and guest suites focused around a new outdoor pool and recreational area. It will be designed in a similar manner as the rest of the house with a copper gable roof and stone cladding and will be connected to the main house by an enclosed glass corridor reinforcing the pavilion style of the building. The existing building will be altered by expanding the living room to the east and adding an outdoor living area. Elevations and renderings are attached as Documents 4 and 5.
The Rockcliffe Park Heritage Conservation District Study contains guidelines for the management of development in the district. The guidelines related to buildings and landscapes are applicable to this proposal:
Section iv)
Buildings
4.
Any application to construct a new building or
addition should be reviewed with consideration of its potential to enhance the
heritage character of the Village.
5.
New buildings and additions should be of their
own time, but should also harmonize with the existing cultural landscape. They
should be sited and designed so as to retain the existing topography. The use
of natural materials should be encouraged.
Section v) Soft
and Hard Landscape
1.
The dominance of soft landscape over hard
landscape should be recognized as an essential feature of the past history and
present character of the Village.
2.
New buildings, fences and other landscape
features or alterations and additions to existing buildings and features,
should be designed and sited so as to protect and enhance significant qualities
of the existing landscape.
The complete Rockcliffe Park Heritage Conservation District Study was
previously distributed to all Ottawa Built Heritage Advisory Committee (OBHAC)
members and is on file with the OBHAC Co-ordinator (Document 9).
While the existing building on this site is not on the heritage list for the Rockcliffe Park Heritage Conservation District, it is a significant landmark in the district as a distinct example of post-modern architecture in Rockcliffe Park. Staff supports this application because the proposed alterations enhance the existing landmark building through a sympathetic addition in a similar style to the original building. The preservation of the form of the building as a series of connected pavilions is also important. The property maintains its large estate feel through the extensive landscaping.
The applicant has also submitted a landscape plan (Document 6) for the proposed development. The site has significant existing vegetation around the perimeter which will be retained and enhanced. While additional hard landscaping will be introduced through the new pool terrace, outdoor living area and driveway, on balance, the soft landscaping will be dominant.
The architect’s Cultural Heritage Impact Statement/ Heritage Planning Rationale can be seen in Document 7.
Recommendation 2:
The Ontario Heritage Act does not provide any timelines for the
expiry of heritage permits. A two-year expiry date is recommended to ensure
that projects are completed in a timely fashion and according to the approved
heritage permit.
Recommendation 3:
Minor design elements including materials may evolve in consultation
with staff prior to the issuance of a building permit. Delegation of approval
to the General Manager of Planning and Growth Management would allow potential
changes to be approved without having to return to Committee and Council.
RURAL IMPLICATIONS
N/A
CONSULTATION
The Rockcliffe Park Resident’s
Association was consulted regarding this proposal, their comments are:
“The RPRA Development Review Subcommittee on April 21 reviewed building
and landscaping plans. The proposed
replacement building fits well with the landmark modern design of the main
house. We do not oppose the demolition of the existing structure.
The shifting of the present driveway entrance on Minto Place slightly
to the south, involving some removal of cedars, should not cause a problem.
Because the path to the street and the driveway are contiguous, they should be
clearly distinguished by different materials. The view into the driveway will
be an improvement over the present view of garage doors.
We applaud the open park-like concept in the landscaping plans for a
space that, with its recent enlargement, now has the scale of an estate. This design
fits well with the design of older Rockcliffe estates. In the selection of trees for planting, we
recommend the use of native species. We
have consistently encouraged this policy of the former Village, and the Ottawa
region has magnificent native tree species from which to choose. “
Heritage Ottawa is aware of the proposal.
Adjacent property owners were notified by letter of the date of the Ottawa Built Heritage Advisory Committee and Planning and Environment Committee meetings and were provided with comment sheets to be returned to OBHAC.
COMMENTS BY THE WARD COUNCILLOR(S)
It is not often that it is possible to
enthusiastically APPLAUD a proposal in a Heritage Conservation District but
this is most certainly the case with this application. Indeed, I note that the RPRA’s Development
Review Sub-Committee says that they “applaud
the open park-like concept in the landscaping plans …” I would go further and apply that
judgement to the entire concept.
This proposal also will not ‘exactly’ conform
to the recently adopted ‘driveway widths’ in Rockcliffe. I consider that a technical problem as those
driveways (the semi-circular driveway, the servicing access and the even the
driveway in the new proposal) all were pre-existing the current application. This proposal makes excellent use of the
features that were already in place.
LEGAL/RISK MANAGEMENT IMPLICATIONS:
There are no legal/risk management implications associated with this report.
CITY STRATEGIC PLAN
Objective F 2: Respect the existing
urban fabric, neighbourhood form and the limits of existing hard services, so
that new growth is integrated seamlessly with established communities.
The City wants to protect the qualities and characteristics that define what is unique and special about each community while accommodating new growth.
Review applications as part of the development and infrastructure approval process for neighbourhood compatibility and the preservation of unique identities of our communities and villages.
Objective
E 8 : Operationalize the Ottawa 20/20 Arts &
Heritage Plan.
2.1.2 Identify and Protect
Archaeological and Built Heritage Resources, Streetscapes, Public and Symbolic
Civic Places and Cultural Landscapes.
2.1.2.2 The City will preserve distinct built heritage, streetscapes and cultural heritage landscapes that serve as landmarks and symbols of local identity in both urban and rural districts, as outlined in the Official Plan.
TECHNICAL IMPLICATIONS
N/A
FINANCIAL IMPLICATIONS
There are no direct financial implications associated with this report.
APPLICATION PROCESS TIMELINE STATUS
This application was completed
within the 90-day time period prescribed by the Ontario Heritage Act.
SUPPORTING DOCUMENTATION
Document 1 Location
Map
Document 2 Current
Conditions
Document 3 Site
Plan
Document 4 Elevations
Document 5 Renderings
Document 6 Landscape
Plan
Document 7 Cultural
Heritage Impact Statement/Heritage Planning Rationale
Document 8 Statement
of Cultural Heritage Value
Document 9 Rockcliffe Park Heritage Conservation District Study (previously
distributed to OBHAC members and on file with the Committee Co-ordinator)
DISPOSITION
City
Clerk and Solicitor Department, Legislative Services to notify the property
owner and the Ontario Heritage Trust (10 Adelaide Street East, 3rd
Floor, Toronto, Ontario, M5C 1J3) of Council’s
decision to issue the heritage alteration permit.
CURRENT CONDITIONS DOCUMENT
2
ELEVATIONS DOCUMENT
4
April 28,
2010
City of
Ottawa
Department
of Planning and Growth Management
110
Laurier Avenue West
Ottawa
Ontario
K1P 1J1
Attention: Lesley Collins,
Heritage Planner,
Heritage Section Development Review (Urban Services)
Re: Cultural Heritage Impact Statement Addition
and Renovations to 299 Soper Place Rockcliffe Park
This original estate lot at 299 Soper Place is a
valued privately owned residential property within the Village of Rockcliffe
Park. As part of the Heritage Conservation District this property has retained
much of its original architectural character and its relationship to the
surrounding environs.
The area of the property is over 2 acres and contains
a unique park- like setting within the confines of large mature trees that
border the property at Soper Place to the south and Minto Place to east. There
currently exists on the property a stone two storey dwelling with a detached
garage and indoor pool structure.
The architectural value of the original stone
structures was enhanced by the use of a variety of contemporary vernacular
forms in an extensive renovation and addition program in 1991. The use of
glass, natural stone and steep metal roofs all formed part of a familiar
architectural dialogue between nature and the historic architectural character
of the Village.
The acquisition of the property to the north created
an opportunity to redesign and reposition the detached garage and pool.
The proposed development includes demolishing this
existing structure and replacing it with a new 1 ½ storey structure oriented
parallel to Minto Place. The new structure will house a 3 car garage, fitness
room, other pool related activities, storage and a guest suite.
The new structure now will be positioned at right
angles to the existing dwelling to create an expanded exterior space ideally
suitable for an outdoor pool and surrounding terraces.
The form of the new structure is similar to the
existing renovated house with steep pitched metal clad roofs, integrated with
large expanses of glass and the exteriors walls clad with wood and natural
stone.
The renovation portion of the proposed development is
to expand the existing ground floor family room with direct access to a sunken
outdoor terrace at the south east corner of the property. This sunken terrace
will be contained by low profile stone retaining walls and will include a stone
outdoor fireplace and a light frame trellis structure.
Overall, the new design proposed compliments the form
of the existing house and the original architectural character with the use of
stone, metal and glass. The existing glass covered portico will now be the main
enclosed link between the new structure and the existing house.
The photograph and drawing below illustrates the low
impact of the new design on views from the neighboring streets.
Yours truly,
Bill Ritcey
BR:ts
Statement of Heritage Character
i) Description
The Village of Rockcliffe Park is a planned residential community first laid out in 1864 by Thomas Keefer. It was created as a partial subdivision of the large estate belonging to his father-in-law, Thomas McKay. Development occurred slowly, but in 1908 a Police Village was created, and by 1926 the Village of Rockcliffe Park had been incorporated. The boundaries established in 1908 have remained intact, and the present Village of Rockcliffe Park is a distinctive community of private homes and related institutional properties within a park setting, still true to the spirit of Keefer’s original vision.
ii.) Reasons for Designation:
The Village of Rockcliffe Park is proposed for designation as a heritage district because of:
- The significance of its original design intentions;
- The continuity in its evolution;
- The richness of its current urban condition;
- Its relationship with its wide setting, and
- The importance of its historical associations.
iii.) Original Design Intentions
The Village of Rockcliffe Park is a rare and significant approach to estate layout and landscape design adapted in Canada from 18th Century English precedents. McKay had adopted this approach in his initial development of the estate, and the original McKay villa and grounds survive as Rideau Hall, the estate of the Governor General of Canada, on the western boundary of the village. When, in 1864, Keefer advertised his Park and Villa lots for private residences, he focused on the picturesque qualities of the scenery, and the importance of curving roads, extensive plantings, and naturalistic settings as key features in any future development. Lots were sold as components of the larger Estate, implying a cohesive landscape approach- purchasers were enjoined from erected anything that would be “inconsistent with the maintenance of the Estate as a park for private residences.” Tree planning on road fronts was an immediate requirement on purchase, and commercial and industrial uses were explicitly banned. This type of ‘suburban’ or borderland development is also a reflection of a particularly North American response to rapid industrialization and urbanization in the 19th Century, with its emphasis on healthy living in a rural or country setting.
iv.) Continuity in Evolution
The Village of Rockcliffe Park today is a remarkably consistent reflection of the ideas set out by Keefer. Although development of the residential lots has taken place very gradually, the ideas of Estate management, of smaller lots as part of a larger whole, of picturesque design, of residential focus, have survived as controlling aspects of the Village’s form and character. This has been in part somewhat fortuitous and unconscious- the cumulative effect of precedent and example. The early estates such as the MacKay villa and Rockcliffe were followed quickly by Birkenfels and Crichton Lodge, which in turn inspired smaller estates on Buena Vista, Mariposa, and Acacia and later Crescent Road. These types of properties continue to establish a Rockcliffe image, which is continually translated by architects and designers into individual variations on the theme. The strong landscape setting is able to embrace a rich diversity of lot and building sizes and configurations.
However, the continuity has also been provided by an active effort by overseers and residents. In the early years, Thomas Keefer and his associates developed special arrangements to control public and private initiatives as Trustees of the MacKay Estate. Later this effort fell to the overseers of the Police Village and then the councillors of the incorporated Village. Considerable energy has been spent by every successive generation to manage development and change, through formal and informal reviews and by a variety of by-laws, planning directives, and special designations. In most communities such initiatives have focused on economic development and minimum property standards; in Rockcliffe there is an extraordinary effort to maintain the scenic qualities, the park setting, the natural features and plantings, the careful informality of streets and services. This continuity of vision is very rare in a community where development has occurred on such a relatively large scale over such a long time period.
v) Current urban condition:
The Village of Rockcliffe Park has combined public and private initiatives to create an unusually rich urban landscape. The deliberately curved roads, without curbs or sidewalks, and the careful planting of the public spaces and corridors, together with the careful siting and strong landscaping of the individual properties, create the apparently casual and informal style so integral to the picturesque tradition. The preservation and enhancement of topographical features including the lake and pond, the dramatic Ottawa River shoreline, the internal ridges and slopes, and the various outcroppings, has reinforced the design intentions. The architectural design of the residences and associated institutional facilities is similarly deliberate and careful, but in the casual elegance and asymmetry of the various English country revival styles which predominate throughout the Village. The generosity of space around the homes, and the flowing of this space from one property to the next by continuous planting rather than hard fence lines, has maintained the estate qualities and park setting envisioned by Keefer. This informal elegance has been a consistent theme throughout the long process of development from the mid-19th Century to the present. There are relatively few examples of the strict neo-classicism that would suggest a more geometric ordering of the landscape.
There is also a set of community practices, intangible rituals that are both public and private, which continue to make sense of this environment- individual and collective outdoor activities, pedestrian and vehicular movement, areas of congregation and encounter, areas of dispersal and isolation. The urban landscape is also sustained by a variety of ongoing planning regulations, reflected most particularly in the current Official Plan and related zoning by-law.
vi.) Relationship with its wider setting:
The Village of Rockcliffe Park has an important and integral association with its larger setting, as a result of patterns of historical development. With the Rideau Hall estate there is a symbiosis that dates back to Keefer’s original vision of the village set within the larger grounds of this original villa. With Rockcliffe Park, there is a deliberate relationship again defined by Keefer, who saw the park as a natural extension and highlighting of the village’s picturesque setting. This relationship was further strengthened with the expansion of the park to the east, and with the addition of the Rockeries. Beechwood Cemetery has also served as a compatible landscape boundary to the southeast from the earliest period of settlement through to the present. These various border areas create important gateways to the village, and help establish its particular character. The views to and from the Ottawa River, the Beechwood escarpment, and the other park areas are integral to the picturesque quality of the Village. These extensions also form an integral part of the Village’s environmental ecosystem. It is unusual to have the internal character of a neighbourhood so strongly reinforced by adjacent land uses; it once again reflects the foresight of the original planners.
vii.) Historical Associations
The most important historical associations of the village as a whole are with the MacKay/Keefer family, major players in the economic, social, cultural and political development of Ottawa. The village today is a testament to the ideas and initiatives of various key members of this extended family, and their influence in shaping this key piece of Canadian landscape. Additional associations have occurred more randomly throughout the history of the village, as people of regional, national, and international significance have resided here and made this community their home base. Such associations are in some ways more private than public, and are an aspect of the village that is preserved more in the intangible continuities and oral traditions of village life than in the stones and mortar of monuments and plaques.
There are also specific associations with individuals who, whatever their prominence elsewhere, have made special contributions within the Village at a public and private level. These people have been part of an unusual form of self-governance, which has blurred the lines between formal and informal participation in the affairs of the Village.