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4. Application
for the construction of An OFFICE BUilding at 412 SPARKS Street in the
cathedral hill heritage conservation district demande en vue de la
construction d’un immeuble de bureaux au 412, rue SPARKS dans le district de
conservation du patrimoine de la colline de la cathédrale |
Committee recommendationS
That Council:
1.
Approve the
construction of the new office building at 412 Sparks Street;
2.
Issue the
Heritage Permit for 412 Sparks Street with a three year-expiry date from the
date of approval; and
3.
Delegate
authority for minor design changes to the General Manager, Planning and Growth
Management.
(Note 1: The statutory 90-day timeline for
consideration of this application under the Ontario
Heritage Act will expire on October 5, 2011.)
(Note 2: 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 Comité
Que le Conseil :
1.
approuve la construction d’un nouvel
immeuble de bureaux au 412, rue Sparks;
2.
délivre le permis en matière de
patrimoine, assorti d’une durée de validité de trois années à partir de la date
d’émission; et
3.
délègue au directeur général d’urbanisme
et Gestion de la croissance le pouvoir d’apporter des modifications mineures de
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 5 octobre 2011.)
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.)
Documentation
1.
Deputy
City Manager's report, Infrastructure
Services and Community Sustainability, dated 19 July 2011 (ACS2011-ICS-PGM-0139).
2
Extract of draft minutes 9, Ottawa Built Heritage
Advisory Committee meeting of 4 August 2011
Report
to/Rapport au :
Ottawa Built Heritage Advisory Committee
Comité consultatif sur le patrimoine bâti
d’Ottawa
and / et
Planning Committee
Comité de l'urbanisme
and Council / et au Conseil
July 19 2011 / le 019 juilliet 2011
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, 22653
Richard.Kilstrom@ottawa.ca
REPORT RECOMMENDATIONS
That the Ottawa Built Heritage Advisory
Committee recommend that Planning Committee recommend that City Council:
1.
Approve the
construction of the new office building at 412 Sparks Street;
2.
Issue the
Heritage Permit for 412 Sparks Street with a three year-expiry date from the
date of approval; and
3.
Delegate
authority for minor design changes to the General Manager, Planning and Growth
Management.
(Note 1: The statutory 90-day timeline for consideration of this
application under the Ontario Heritage Act
will expire on October 5, 2011.)
(Note 2: 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
de recommander à son tour au Conseil :
1.
d’approuver la construction d’un
nouvel immeuble de bureaux au 412, rue Sparks;
2.
de délivrer le permis en matière de
patrimoine, assorti d’une durée de validité de trois années à partir de la date
d’émission; et
3.
de déléguer au directeur général
d’Urbanisme et Gestion de la croissance le pouvoir d’apporter des modifications
mineures de 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 5 octobre 2011.)
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
Context
The proposed building is located within the Cathedral Hill Heritage Conservation District (HCD), designated in 1989 (Bylaw 286-89) (see Location Map, Document 1). The Cathedral Hill HCD is a small heritage conservation district located at the western edge of the Central Area. It consists of eight buildings. One building, 412 Sparks Street, burned down after the creation of the HCD (see HCD Map, Document 2; photographs of the buildings, Document 3; and the annotated aerial view, Document 4). The Cathedral Hill HCD study included a building- by-building analysis of the district, but did not include Guidelines to guide future development in the District. It did, however, contain a brief statement of the area’s significance:
It is the last remaining block in the commercial core
of Centretown that retains a nineteenth-century neighbourhood character...The
remaining houses now surrounding Christ Church create a richly textured
tapestry of urban built forms. Some have historical associations with the
Anglican Church or important Ottawa families, while others represent unique
architectural patterns, and eclectic styles of the period...the
late-nineteenth-century urban grouping of heritage buildings, set on an
escarpment of natural limestone, creates a transitional gateway to the more
intense curtain of twentieth-century highrise development east of Bay and south
of Queen which marks Centretown’s skyline from its western approaches.
Christ Church Anglican Cathedral was designated under Part IV of the Ontario Heritage Act in 1977 for its architectural and historical value. The Statement of Reason for its designation notes that there has been an Anglican Church on the site since the 1830s, that the current building was designed by King Arnoldi, and that the structure is an example of the Gothic Revival style, “sturdily conceived and comparatively severe” (see Document 5).
The Cathedral Hill HCD is flanked to the south by a line of towers constructed mainly in the 1960s and 1970s, and to the east by the tall buildings of the Central Business District. The Gardens, a post-2000 condominium tower, 17 storeys in height, is located at the corner of Queen Street and Bronson Avenue to the south of the site, and the landmark Juliana apartments are located on the west side of Bronson. St. Peter’s Lutheran Church is located to the east of the Cathedral Hill HCD and is not included in it. The Garden of the Provinces, a National Capital Commission Park, is located to the north of the property, on the north side of Sparks Street. A small park overlooking LeBreton Flats anchors the District to the west.
Description of Project
On May 11, 2011 City
Council approved a development under the Ontario
Heritage Act (OHA) for the Cathedral Hill HCD. The project, as approved, is
very complex; it included a 12-storey (54 metre) office
building on the current 50-space parking lot; an integrated building that
included a new Cathedral Hall, attached to the Cathedral and Lauder Hall, a
21-storey apartment building, (73.6 metres high at the south of the lot and 60
metres at the north) that includes a portion of the semi-detached house at 441‑443
Queen Street, and townhouses at grade
facing Sparks Street.
The current application deals with a redesigned office
building. From the Cathedral west to Bronson Avenue, the project remains
unchanged. The redesigned office building is the same height as the approved office building
and has similar setbacks, however it is different in design and expression (see Site Plan Extract, Document 6, and Elevations,
Document 7.
The Cathedral Hill HCD is a very small district, with dense urban
development, including mid-to-high rise buildings ranging up to 17 storeys in
height on its south, west and east sides.
St. Peter’s Lutheran Church is adjacent to the eastern boundary of
the District but is not designated under the OHA, however, it is a Category 4
building on the City’s Heritage Reference List.
There are three Queen Anne Revival style houses to the east of the
proposed development that are included in the HCD and which are not included in
the project.
This already-approved project features a new Cathedral Hall to replace
the existing 1950s building, a restored Roper House, and a 21-storey
residential building that incorporates the townhouses on Queen Street at its
base. In addition, the already-approved development west of the Cathedral
features buildings articulated into narrow bays facing Queen and Sparks Streets
that are similar to the adjacent heritage buildings in width and continue the
rhythm of the street.
The office building, with its 12-metre setback that creates a landscaped
court in front of the Cathedral that will re-establish the east end of the
street as an appealing pedestrian precinct that honours its historic buildings.
DISCUSSION
Unlike most heritage conservation districts in
the city, there are no specific guidelines to manage change in the Cathedral
Hill HCD. The goals of the study that
led to its designation under Part V of the Ontario Heritage Act were
made clear in a public consultation session in 1989 that stressed that the
proposed district would ensure that “change and development is managed so as
not to detract from Cathedral Hill’s special character.”
At the City’s request, the applicant for this project engaged a
heritage consultant to undertake further research on the buildings within the
HCD and their cultural heritage value. In that document, the values of each
building were identified and a thorough background study undertaken. This information assisted in the evaluation
of the impact of the proposed development upon the heritage character of the
HCD.
Recommendation 1
The office building will be located to the east of the Cathedral,
separated from it by a six-metre landscaped pathway. The proposed building is a simple 12-storey
(54-metre) tower with a curved glass curtain wall, stone cladding at the bottom
two floors and a mixture of glass and metal panels on the west, east and south
facades above the second floor. The east and west facades are saw toothed, with
small window openings. The building has a mezzanine level at the
base that is set back under a three metre overhang. All the buildings on
the site feature a similar masonry base that establishes a human-scaled,
horizontal base at street level. The two lower storeys will be stone clad to
complement the stone masonry construction of the adjacent Cathedral. This recessed base breaks up the height and
massing of the structure, while the smooth glass curtain wall rises above the
overhang. The northwest corner of the curved office tower will be
setback about 12 metres from the sidewalk edge adjacent to the Cathedral and
about four metres from the sidewalk at its eastern edge. These setbacks will ensure that pedestrian views of the
Cathedral from the east open up as one moves westward and will create an open
area in front of the Cathedral that will be landscaped. The façade is visually divided into three by a combination of varied
materials and lighting options through the use of interior wooden shutters.
Site plan/ Setting
The Cathedral Hill HCD currently does not have a unified streetscape design, and is characterized by parking lots, isolated street trees and a lack of cohesion. The proposed project creates a unified plan for the public realm and for the courtyard system planned for the north south connections between Queen and Sparks Streets. The walkway between Queen and Sparks Streets that will separate the office building and the Cathedral will be slightly curved and landscaped with a combination of raised and flat beds on either side. It will be accessed from Queen Street by a set of stairs and will open into the courtyard area flanking the sidewalk in front of the Cathedral (see Site Plan and Setting Details, Document 8, and Renderings, Document 9).
Cultural Heritage
Impact Statement
Section 3.3, “Summary of Impact …” of the “Cultural Heritage Impact
Statement” enumerated the advantages and disadvantages of the proposed design.
The advantages included the retention of key buildings, such as Cathedral Hill,
Lauder Hall, and Roper House, the demolition of the 1959-60 Cathedral Hall, and
the retention of important views. Disadvantages included the partial, rather
than entire, retention of the Queen Street semi-detached building, the height
of the new buildings relative to the Cathedral spire, and the impact of the
residential building on Roper House. The conclusion of the “Cultural Heritage
Impact Statement” outlined some of the efforts already made to mitigate the
preceding disadvantages. They include
the elimination of surface parking, the construction of a new Cathedral Hall,
the use of compatible materials, the setting of the residential tower upon a
podium base that matched the Roper House in scale, the curved front façade of
the office tower to preserve views of the Cathedral from the east, the creation
of street- related residential uses, a uniform streetscape and the overall
design of the project that accentuates the verticality of the spire (see
Document 9).
Tall buildings
Tall buildings have the potential to have a profound effect upon their setting and their location relative to historic resources. Their architectural expression must be taken very seriously. The context and the impact of tall buildings on the character, not only of the immediate area, but also on the city as a whole are critical. Good design is paramount, and equal attention should be paid to the relationship with the public realm at ground level and the architectural treatment of the top because of its effect on the skyline. Tall buildings can increase the functionality of an area and enrich the public realm. They are most appropriate in an area where there are other tall buildings, as their impact is not as great when they are surrounded by similarly- sized structures.
Conclusion
The Department has examined the proposed project in the process of assessing the Zoning By-law Amendment and the application under the Ontario Heritage Act. These are separate applications, one under the Planning Act and the other under the Ontario Heritage Act. City Council supported the Zoning Amendment Application at its meeting of May 11, 2011.
In supporting the applications for new construction at its May 11, 2011 meeting, City Council supported the concept of constructing two tall buildings, one residential and one office, in the Cathedral Hill HCD. This application is consistent with the previously approved application. The new building, through its smooth curved front façade, its elegant understated design, use of glass, stone and metal, will contribute to the ensemble that has the historic Cathedral at its centre. For these reasons, the Department has no objection to the revised office building that is currently proposed for the Cathedral Hill HCD.
Recommendation 2
The Ontario Heritage Act does
not provide any timelines for the expiry of heritage permits. A three year
expiry date is recommended to ensure that projects are completed in a timely
fashion and according to the approved heritage permits. In this case, because
of the complexity of the project, three years is perceived to be a reasonable
time frame.
Recommendation 3
Occasionally, minor changes
to a building emerge during the working drawing phase. This recommendation is included to allow the
Planning and Growth Management Department to approve these changes without
taking the project back through the entire approval process.
RURAL IMPLICATIONS
CONSULTATION
Adjacent property owners have been notified by letter of the application and the dates of the Ottawa Built Heritage Advisory Committee and Planning Committee meetings.
The Centretown Citizens Community Association has been informed of the project.
Heritage Ottawa is aware of this project.
COMMENTS BY THE WARD COUNCILLOR
Application for a
New Development in the Cathedral Hill HCD
The current zoning, permitting approximately 4 storeys along the street
edge and 6 storeys within the interior of the block, was established by the
former City of Ottawa in order to protect the primacy of the Cathedral’s
silhouette atop the escarpment, and against the skyline.
While I was prepared to accept the previous version of this submission,
which although pushing the height to an extreme, had the advantage of being no
taller than the background buildings at 85 and 95 Bronson Avenue. The taller
and more aggressively-shaped version, which was produced at the urging of
the Urban Design Review Panel, is excessively tall and will in my view
overwhelm the Cathedral and its attendant buildings such as the Roper House.
Nationally significant views from the west and north would be forever
destroyed.
Cathedral Hill is one of the Central Area’s most important heritage
conservation districts, and I am deeply concerned that this developer has been
encouraged to submit an insensitive, awkward and inhumanly-scaled design. For
these reasons I do not support the approval of this new development within the
Cathedral Hill Heritage Conservation District.
LEGAL IMPLICATIONS:
Section 42 of the Ontario Heritage Act provides that the owner of
property situated in a heritage conservation district must obtain a permit from
the municipality to erect any building or structure on the property. If the
recommendations are not approved, reasons will need to be provided and if an
appeal of the refusal by the owner to the Ontario Municipal Board were to
occur, it is anticipated that a three to four day hearing would be required. An
external heritage planner would need to be retained at an estimated cost of
$15,000-$20,000. Additionally if circumstances were to require that outside
counsel be retained to undertake the hearing, this would cost an estimated
$30,000.
RISK MANAGEMENT IMPLICATIONS
There are no risk implications associated with this report.
FINANCIAL IMPLICATIONS
As mentioned in the Legal Implications paragraph above, if Ontario Municipal Board hearing were to occur the estimated cost of an external heritage planner would be $15,000-$20,000 and if outside counsel were required, it would be an additional estimated cost of $30,000.
Funds are not budgeted for an external heritage planner and outside counsel; the expense may impact Planning and Growth Management’s 2011 operating status.
TECHNICAL IMPLICATIONS
N/A
CITY STRATEGIC PLAN
F1 Become leading edge in community and urban design including housing creation for those in the city living on low incomes and residents at large.
F2 Respect the existing urban fabric, neighbourhood and the limits of existing hard services, so that new growth is integrated seamlessly with established communities.
APPLICATION PROCESS TIMELINE STATUS
This application was completed within the 90-day time period prescribed by the Ontario Heritage Act. The time period expires on October 5, 2011.
SUPPORTING DOCUMENTATION
Document 1 Location Map
Document 2 Map of Cathedral Hill HCD
Document 3 Photographs
Document 4 Annotated aerial view
Document 5 Statement of Reason
Document 6 Site
Plan Extract
Document 7 Elevations
Document 8 Site plan and setting details
Document 9 Renderings
Document 10 Extract from Cultural Heritage Impact Assessment
Document 11 Architect’s Impressions, views
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 allow the development within the Cathedral Hill HCD to
proceed.
Cathedral Hall, to be removed
Christ Church Anglican Cathedral
Christ Church Cathedral
By-law 77-80
Christ Church Cathedral, Queen Street and Sparks Street, is recommended for designation as being of architectural and historical value. The site was donated by Nicholas Sparks in 1832. The first church was built during 1832-33. The present building was erected during 1872-73, being designed by King Arnoldi, a prominent Ottawa architect. In 1897 Christ Church was established as the Cathedral of the Anglican Diocese of Ottawa.
In its overall exterior appearance, the church is of the Gothic Revival style, sturdily conceived and comparatively severe. Christ Church’s prominent role in the life of the City is marked by its striking location atop a promontory marking the western edge of Ottawa’s Central Area.
Cultural Heritage
Impact Statement
Section 3.3, “Summary of Impact …” of the “Cultural Heritage Impact
Statement” enumerated the advantages and disadvantages of the proposed design.
The advantages included the retention of key buildings, such as Cathedral Hill,
Lauder Hall, and the Roper House, the demolition of the 1959-60 Cathedral Hall,
and the retention of important views. Disadvantages included the partial,
rather than entire, retention of the Queen Street semi-detached building, the
height of the new buildings relative to the Cathedral spire and the impact of
the residential building on Roper House. The conclusion of the “Cultural
Heritage Impact Statement” outlined some of the efforts already made to
mitigate the preceding disadvantages.
They include the elimination of surface parking, the construction of a
new Cathedral Hall, the use of compatible materials, the setting of the
residential tower upon a podium base that matched the Roper House in scale, the
curved front façade of the office tower to preserve views of the Cathedral from
the east, the creation of street related-residential uses and a uniform
streetscape and the overall design of the project that accentuates the
verticality of the spire.
![DSC_9288[1].JPG](4%20-%20ACS2011-ICS-PGM-0139%20-%20412%20Sparks%20Street_files/image052.jpg)
![DSC_9228[1].JPG](4%20-%20ACS2011-ICS-PGM-0139%20-%20412%20Sparks%20Street_files/image056.jpg)
Advisory Committee extract of draft Minutes 9 4 August 2011 |
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Comité consultatif sur le patrimoine bâti
d’ottawa extraite de l’Ébauche du Procès-verbal 9 le 4 aoÛt 2011 |
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Application
for the construction of An OFFICE BUilding at 412 SPARKS Street in the cathedral
hill heritage conservation district
demande en vue de la
construction d’un immeuble de bureaux au 412, rue SPARKS dans le district de
conservation du patrimoine de la colline de la cathédrale
ACS2011-ICS-PGM-0139 somerset (14)
REPORT RECOMMENDATION:
That the
Ottawa Built Heritage Advisory Committee recommend that Planning Committee
recommend that City Council:
1.
Approve the
construction of the new office building at 412 Sparks Street;
2.
Issue the
Heritage Permit for 412 Sparks Street with a three year-expiry date from the
date of approval; and
3.
Delegate
authority for minor design changes to the General Manager, Planning and Growth
Management.
(Note 1: The statutory 90-day timeline for
consideration of this application under the Ontario Heritage Act will expire on
October 5, 2011.)
(Note 2: 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.)
Lesley Collins, Heritage Planner, provided an overview of the report.
Matthew
Johnston, Perkins and Will Architects; John Wright, Corush, Sunderland Wright; and Carl
Bray, Bray Heritage were present on behalf of the applicant to provide
additional details materials, design, landscaping and integration with heritage.
Leslie Maitland, President, Heritage Ottawa expressed support for the proposal noting the organization’s only reservation is the height of the flanking projects. She said Heritage Ottawa understands the position of the Diocese and their attempts to maintain aging structure while providing updated spaces for its ongoing good works. She stated that while the proposed building is not a perfect solution, given the heights of the new buildings, it is likely one that most people can live with.
She pointed out that many heritage resources in the Cathedral Hill Heritage Conservation District will be conserved and some will be enhanced. Furthermore, she noted the principle view of the cathedral from Wellington Street would be preserved, thereby linking the Cathedral to the most significant street in the City. With respect to possible future minor design changes, she asked that the applicant considering retaining the graceful sweep of the front of the new building, as it acknowledges the Cathedral so well, as well as the largely blank western wall, which serves as the blank canvas against which the cathedral is the portrait from western perspectives. A copy of Ms. Maitland’s more detailed comments is held on file with the City Clerk and Solicitor’s office pursuant to the City’s Records Retention and Disposition By-law.
David Jeanes supported the proposal on two fronts, one as a member of the governing assembly of the Diocese and the other as a heritage advocate. He felt the proposal is a good response to the problems encountered with development in the area, noting that it appears that every heritage building within this particular Heritage Conservation District would still be linked a continual line along Queen Street. He advised OBHAC members to stay aware of the evolution in the district, noting that the City’s Light Rail Transit will impact the escarpment contained within the HCD as it is the proposed site for a tunnel.
The report recommendation was moved by Elizabeth Eagen and CARRIED as presented.