Report to/Rapport au :

 

Planning and Environment Committee

Comité de l'urbanisme et de l'environnement

 

and Council / et au Conseil

 

9 June 2004 / le 9 juin 2004

 

Submitted by/Soumis par : Ned Lathrop, Deputy City Manager / Directeur municipal adjoint

Planning and Growth Management / Urbanisme et Gestion de la croissance

 

Contact Person/Personne ressource : Sandra Garnett, Manager / Gestionnaire

 Legal and Service Integration / Insertion juridique et des services

Building Services/Direction des services du bâtiment

(613) 580-2424 x41544, sandra.garnett@ottawa.ca

 

Capital / Capitale (17)

Ref N°: ACS2004-DEV-BLD-0012

 

 

SUBJECT:

SIGN BY-LAW AMENDMENT - BANK STREET, OLD OTTAWA SOUTH DISTRICT

 

 

OBJET :

MODIFICATION AU RÈGLEMENT SUR LES ENSEIGNES - RUE BANK, ANCIEN SECTEUR D'OTTAWA-SUD

 

 

REPORT RECOMMENDATION

 

That the Planning and Environment Committee recommend Council approve a By-law Amendment to Signs By-law 36-2000, of the former City of Ottawa, to the Bank Street District of Old Ottawa South, as detailed in Document 1 for the area shown on Document 2.

 

RECOMMANDATION DU RAPPORT

 

Que le Comité de l'urbanisme et de l'environnement recommande au Conseil d'approuver une modification au Règlement sur les enseignes no 36-2000 de l'ancienne Ville d'Ottawa concernant la rue Bank, ancien secteur d'Ottawa-Sud, comme il est précisé dans le document 1 pour le secteur représenté dans le document 2.

 

BACKGROUND

 

On July 23, 2003, City Council approved a number of recommendations arising from the Urban Design/Zoning Study review regarding the future development of Bank Street in Old Ottawa South.  Zoning changes were approved to reflect the Official Plan's "Mainstreet" designation.  The approved zoning changes to the commercial area included amendments to increase height/massing, provide continuous building facades and create a human-scale pedestrian environment in the old Ottawa South business district.  The Urban Design/Zoning Study review also identified the need to review the provisions of the former City of Ottawa Signs By-law 36-2000 in the context of the design principles for Old Ottawa South.  This review was completed and this report brings forward the recommendations on required amendments to former City of Ottawa Signs By-law 36-2000.

 

DISCUSSION

 

The commercial zoning in Old Ottawa South is listed as Neighbourhood Commercial (CN) and is designated as a District 3 area in the former Ottawa Signs By-law.  These requirements are more restrictive than most of the other commercial areas that are rated as a District 4 in the Signs By-law.  For example,  District 4 allows wall and canopy signs to be up to 30% of the wall coverage whereas a District 3 allows up to 20% of the wall coverage of a building.  Businesses in a CN zone may have ground signs, wall signs, information signs, canopy signs, projecting signs and temporary signs provided the signs comply with the related performance standards.  Billboard signs, mural signs and logo type signs are not permitted in this area.

 

The signage review of Bank Street in Old Ottawa South focused on maintaining the unique design elements of this neighbourhood.  Many of the primarily community servicing businesses have provided unique traditional style identification which often compliments the building facades.  Signage is an important component of the streetscape and a design element that contributes to the visual quality of Bank Street's Mainstreet designation in the Official Plan.  The review objective was to maintain a consistent theme in old Ottawa South, to fulfill the Urban design objectives, and to visually enhance the Bank Street facades and architectural features.  Based on interests expressed by the community, the review looked for opportunities to enhance and aesthetically add to the Bank Street Mainstreet pedestrian character.

 

The approved urban design guidelines promote a pedestrian-oriented streetscape, a reduction of visual clutter, and a focus on building elements along the street.  Signs at a scale and appearance more appropriate for pedestrian traffic, rather than automobiles, and that enhance the newly refurbished Bank Street are encouraged.  For example, pedestrian oriented signage would be obtained by reducing the scale of ground signs and eliminating pole-mounted signs located on private property, or by amending illumination provisions and revising design features for wall, canopy and projecting signs, or by adding provisions to allow mural signs to add to the character of this business district.

 

Review Process

 

As part of the review, Building Services staff met with community representatives from the Ottawa South Community Association and the Old Ottawa South Business Association.  Information was provided on the general themes and Urban Design guidelines for the area as approved by the zoning study.  As well, a series of questions were circulated to these groups for review and discussion.  The questions focused on the appropriate scale of signage, whether ground signage is desirable for the area, preferences for different signage types, what type of signage illumination is acceptable and if there are any general concerns on signage for the Bank Street area.  Feedback is provided in the consultation section of this report.

 

 Also considered was a section of a policy paper prepared by the Ottawa South Community Association completed in April 2002 as part of the urban design and zoning study for this area.  In this design review, the community association noted suggestions for general sign guidelines. The association noted that advertising was better located on the first floor and that projecting signs above the ground level should be discouraged and be smaller in permitted area.  The group also stated that free-standing pole mounted signs are not appropriate and indicated their preference for having identification on building facades.  For sign design, they concluded that signs should be encouraged within the architectural framework of the ground level and externally illuminated.  Signs within box-type frames are generally discouraged unless lighting is concealed.  Finally, primary wall signage should be located immediately above the storefront of a business.

 

A meeting with business representatives from the old Ottawa South area provided City staff with valuable feedback in achieving a theme for old Ottawa South.  Suggested improvements included ways to reduce visual clutter, limit temporary signs, reduce impact of ground signs, have signs respect architecture and alter the illumination provisions.  There was a caution of not having too much emphasis on the specific design of signs to allow businesses the ability to be flexible and creative in their signage.  There was also a request to allow mural signs in this area and encourage a mural program to attract business to the area and add to the historic character of this district.

 

Feedback from the community groups expressed concern about billboard signage and temporary signs in old Ottawa South.  Billboards are not permitted in old Ottawa South and this will not change with the new amendment.  The existing legal non-conforming signs are allowed to remain unless removed or substantially altered.  

 

The community has expressed concerns with the use of some temporary signage, in particular the larger mobile signs used to advertise individual businesses.  The Community preference is to prohibit these signs.  Temporary signs located on private will be regulated by the recently approved By-law 2004-239, administered and enforced by the Emergency and Protective Services Department.  It will be in force on July 1, 2004.

 

This new by-law allows for moratoriums banning all portable, temporary and additional billboard signage for specified geographic areas as determined in consultation with the local community.  The Department will refer these concerns to the Emergency and Protective Services Department to review and take appropriate action.

 

Recommendations

 

In order to achieve the design objectives for this area, the following strategies are recommended to enhance the mainstreet character of this area and reduce visual clutter on building facades.

 

Ground Signs

 

The first strategy is to reduce the impact of ground signs.  This will be achieved by reducing the maximum height of ground signs and also requiring that signs be designed in a way to eliminate pole mounted signs.  The elimination of ground signs was considered in view of the zoning changes that recommended a maximum one metre setback for new development on Bank Street.  However, it was concluded that ground sign provisions should remain for existing lots that have larger existing setbacks.  Ground signs for new development would be difficult to achieve with the new zoning provisions and the front yard setback provision of the Signs By-law and would most likely be replaced with wall signage on facades.

 

For the new provisions, ground signs would be limited to a height of 3 metres instead of 4.5 metres.  This is consistent with the height limits of signs in other municipal by-laws in a similar CN zoning provision found in the former City of Nepean.  For design reasons,  ground signs will only be permitted if installed on a pedestal base to eliminate the pole mounted sign which was not seen as appropriate by the community groups.  It was necessary to correct an anomaly by changing the area requirement to a level suitable to a neighbourhood commercial zone with a maximum limit of signage area of 5 square metres (54 sq. ft.).  Information signs will be restricted to 1.5 metres to lessen the impact on the streetscape and to be consistent with the height of these signs from other by-laws.

 

Illumination

 

The second strategy suggests limiting the impact from sign illumination by reducing light spillover to adjacent uses and by promoting external lighting.  Many of the businesses on Bank Street have changed their lighting to a more traditional external "goose-neck" style of lighting.  Comments from the community expressed that sign-box style of illumination should be discouraged.  It was concluded that the provisions should be revised to limit internal illumination to be only permitted through letters or images of the signage on an opaque background.  Also known as back-lit or reversed illumination, signage with this design will lessen the lighting intensity that projects from the signage area.  This would limit the impact to adjacent uses and reduce the lighting of sign box style signage.

 

Sign Uniformity

 

The third strategy entails the promotion of sign uniformity and the reduction of visual clutter by limiting the location of wall, canopy and protecting signs to the ground floor level and having a specific provision to protect the architectural details of a building.  For sign uniformity,  it was concluded that limits on location and uniformity were more appropriate than changing the area provisions for wall signs.  Currently,  wall and canopy signs may be permitted up to 20% of the wall area.  With the small store fronts, a smaller level would be restrictive to the businesses.  A maximum sign band height of 1.5 metres was considered but not recommended as the by-law already has general uniform guidelines stating that signs on the same building must be of uniform height and arrangement.  Restricting location to the ground floor for signs is recommended to promote a consistent signage theme for this area.  It would also be consistent with the expressed wishes of the community to have signage limited to the storefront area.  To improve the design of buildings, it is also proposed to specify signs must not cover architectural features to protect the unique facades of buildings in this area.

 

 Mural Signs

 

Based on a request and discussions with the business community, mural signage will be permitted with performance standards to enhance the character of this area and to promote this unique business district.  Existing examples can be found in business areas including Vanier and the Byward Market.  Mural signs are only permitted in a District 4 zone of the old Ottawa By-law with general limits in area which are the provisions listed in a District 4 zone for wall signage.  Mural signs are recommended with a slight increase to the patron acknowledgement area and with restrictions to limit scale and separation distance between other mural signs.  Since this is a new development for this area,  provisions would be in place to limit having an abundance of murals in this district.  Given the scale of a typical mural sign,  mural signs will be permitted on the first and second storey.

 

In conclusion, the strategies listed above, to amend the Signs By-law will enhance the urban design themes in this district.  Changes to ground signs, illumination, sign uniformity and mural signs are consistent with the Mainstreet designation for the old Ottawa South section of Bank Street.  A new by-law amendment will affect the commercial zoned properties as shown in Document 2.

 

CONSULTATION

 

Members of staff met with the Ottawa South Community Association on March 16, 2004 to address sign issues and introduce questions on signage.  A similar meeting was held with staff and the Old Ottawa South Community Association on April 7, 2004.  Both groups received draft recommendations for comments.  The Ward Councillor was notified and received a copy of the draft recommendations.

 

Comments received are as follows:

 

eliminate ground signs, ban portable signs and billboards

restrict location of wall signs

internal illumination should be prohibited in favour of external illumination

allow projecting signs of a modest scale

Limit height of information signs to 1.5 metres (from the current 3 metres).With other limitations in this bylaw, I find this an unnecessary change and would vote for removal.

Concern with the provision to set a sign band limit for each building.

Concern with area restriction and setbacks for murals. It could affect any plans of 'mural-ing' an area. I can't support this.

Concern with temporary signs and why they are not being addressed in draft by-law.

I have major problems with this draft bylaw and hope that the issues presented at the meeting of Old Ottawa South small businesses are better addressed before this bylaw is passed.

 

 The subcommittee OSWATCH of the Ottawa South Community Association submitted the following:

 

"Here are our comments on signage and the proposed amendments for OOS:

 

Some banner signs have been on buildings for a long time (e.g., Fergus Inn). The by-law only seems to regulate size, not duration. Since banner signs are by nature temporary, it might be possible to restrict the duration of banner signs in the same manner. We think that it should be considered and specified in the by-law.

There are currently 10 billboards in OOS. We do not want more and would prefer to have less. Since the by-law for district 3 (that is OOS, isn't?) now prohibits billboards, we assume that there will be no new billboards in the future. However, we also think that the City should look at ways of eliminating billboards in OOS. Other cities have done so.

The by-law does not seem to cover signage in windows. Some business windows in OOS are almost entirely covered by advertising (e.g., travel posters). We would like to know whether it is possible to have regulations regarding the amount of window space which can be covered by signage. If so, they should be included in the proposed amendments.

Some shops have three of four signs on their property (e.g., Seven-Eleven and Scotiabank). They are redundant and junky in appearance. The signage by-law does not seem to restrict the number of signs allowed per building or per business. We would like to have that considered and included.

We see nothing in the by-law regarding neon signs. Our preference would be to discourage such signage. We would recommend that they be prohibited.

The proposed reduction of the height of ground signs (3 meters) and the height of the information signs (1.5 meters) seems reasonable to us.

The proposed amendment on sign illumination seems okay but we did note that an opaque background seems to allow signs like those on Scotiabank which are bright and aesthetically unattractive. Perhaps it would be possible to add the word 'soft' before opaque to reduce the potential of 'glare' from such signs.

In terms of proposed amendment on sign uniformity and mural signs, it is not clear why wall, canopy and projecting signs are limited to the first floor and mural signs are permissible on the ground and second floors. We recommend that all four types of signs be limited to the ground floor."

 

Response to Comments

 

The amendments to the Signs By-law are intended to be consistent with the design provisions for this area and to promote a consistent mainstreet pedestrian theme for this business district.  The reduction in scale and type of ground signs is one way to achieve that goal.  Provisions are directed at maintaining smaller ground signs that are more appropriate for this district.  Temporary signs are not being addressed in this report.  Billboard signs will continue to be prohibited but a few will remain because of non-conforming rights.

 

The amendments will enhance the building facades and provide for consistent sign uniformity.  External illumination of signs is encouraged, however, a ban on internal lit signs was considered too restrictive.  Instead, limited internal illumination will be allowed if the signs project through the letters or images of the sign background.  The location of wall signs will be restricted to the ground level or store front area to be consistent with the pedestrian theme in this area. 

Mural signs will be allowed to enhance the character of this area with specific area and separation requirements to prevent from a possible sign proliferation of this new sign type.  These will be permitted on the first and second floors as mural signs often can span two floors of area. The Signs By-law does not regulate the display, whether temporary or permanent, of materials on the inside face of windows that may be construed as signage.  Treatment of window displays whether such include posters, curtains, or merchandise and whether the purpose is to block views or promote the business or products on sale is beyond the mandate and purpose of the existing By-law and would require additional resource allocations. 

 

In response to the comments on illumination, it would be logistically difficult to enforce lighting intensity regulations.  It is preferable to regulate illumination by allowing a certain type of signage.  The back-lit type of sign is typically less intense in the level of lighting that projects from the image.

 

FINANCIAL IMPLICATIONS

 

N/A

 

SUPPORTING DOCUMENTATION

 

Document 1     Details of Sign By-law Amendment

Document 2     Location Map

 

DISPOSITION

 

Corporate Services Department, Secretariat Services Branch to notify the Ottawa South Community Association, the Old Ottawa South Business Association and Councillor Clive Doucet of City Council’s decision.

 

 

DETAILS OF RECOMMENDED SIGN BY-LAW AMENDMENT                       Document 1

 

 

 

 

 

 

 

LOCATION MAP                                                                                                         Document 2