Report
to/Rapport au :
Local Architectural Conservation Advisory Committee
Comité consultatif sur la
conservation de l'architecture locale
and /
et
Planning
and Environment Committee
Comité de l'urbanisme et de
l'environnement
and Council / et au Conseil
19 February 2008 / le 19 février 2008
Submitted by/Soumis par : Nancy Schepers, Deputy City Manager
Directrice municipale adjointe,
Planning, Transit and the Environment/
Urbanisme, Transport en commun et Environnement
Contact Person/Personne Ressource : Grant Lindsay,
Manager / Gestionnaire, Development Approvals / Approbation des demandes
d'aménagement
(613) 580-2424, 13242 Grant.Lindsay@ottawa.ca
REPORT RECOMMENDATIONS
That the Local Architectural Conservation Advisory Committee recommend
that Planning and Environment Committee recommend that Council:
1. Approve the demolition of 132 Stanley Avenue, a property located in the New Edinburgh Heritage Conservation District and designated under Part V of the Ontario Heritage Act.
2. Approve the application to construct two groups of three townhouses, according to drawings by David Mailing, Architects, received on February 11, 2008.
(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 la conservation de l’architecture locale recommande au Comité de
l’urbanisme et de l’environnement de recommander à son tour au Conseil :
1. d’approuver la démolition du 132,
avenue Stanley, une propriété située dans le District de conservation du
patrimoine de New Edinburgh et désignée en vertu de la partie V de la Loi sur le patrimoine de l’Ontario.
2. d’approuver la demande de construction
de deux îlots de trois maisons en rangée, conformément aux dessins de David
Mailing, Architectes, reçue le 11 février 2008.
(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
The property at 132 Stanley Avenue is located within the New Edinburgh Heritage Conservation District which is designated under Part V of Ontario Heritage Act through By-law 2001-44. It is located at the corner of Queen Victoria Street and Stanley Avenue in the northwest part of the Heritage Conservation District (see Location Map, Document 1). Demolition of structures and new construction within a heritage conservation district requires the approval of City Council following consultation with the Local Conservation Advisory Committee (LACAC).
DISCUSSION
The New Edinburgh Heritage Conservation
District was designated under Part V of the Ontario
Heritage Act as a result of a co-operative effort between City of Ottawa
staff and New Edinburgh community members. During the course of the Study every
building in the proposed District was evaluated and given a score according to
the City of Ottawa's "Handbook for Evaluating Heritage Buildings and
Areas." In addition, the community and heritage staff worked together to
develop a "Heritage District Plan" that includes a heritage character
statement and Guidelines for managing change in the District.
Through consensus, the committee scoring the
buildings in the area agreed to place buildings built after 1939 in Category 4,
the lowest category, because it was believed that insufficient time had passed
to be able to judge the heritage value of these structures. The house at 132 Stanley Avenue was built in
1967 on the site of a semi-detached residence and is thus a Category 4 building
(see Heritage Survey Form, Document 3).
The Heritage Conservation District Plan is
intended to manage change in the area. It is divided by topic, with specific
guidelines for restoration, rehabilitation and infill development, among
others. The Plan anticipates that infill buildings would be constructed on vacant
lots or lots where there were Category 4 buildings, and includes Guidelines for
new construction. The Introduction to the Guidelines states that the general
goal of the plan regarding new development is to:
encourage new construction that is
complementary to the character of the area and discourage attempts at
historicizing buildings by using architectural trim, window shutters etc. that
attempts to "age" a building. They [the Guidelines] will promote the
enhancement of New Edinburgh's streetscape through tree-planting, interpretive
panels etc., in a way that celebrates the area's "village character"
and contributes to its sense of space.
The specific Guidelines relating to infill are
relevant to the current application.
Section 3.3 ii) Houses, states:
1. Replacement buildings constructed in the part of New Edinburgh to which the Heritage Overlay (Sections 14-19, General Provisions) of the City of Ottawa Zoning Bylaw, 1998 applies, must be rebuilt "to the same height, bulk, size, floor area, spacing and in the same location as existed prior to its removal or destruction."
2. According
to the provisions of the City of Ottawa Zoning Bylaw, the Heritage Overlay does
not apply to lots vacant before 1978
3. As
the heritage character of adjacent properties throughout the District varies,
the character of adjacent properties should be acknowledged so that new
construction respects and reinforces the character of the streetscape.
4. The
existing small lot development pattern should be maintained. Development over a number of lots is
discouraged. If development of this type occurs, the building should be
articulated so that it reads as a series of smaller elements.
5. New
buildings with garage doors that dominate the street will not be approved.
Other less unsightly provisions for parking should be developed such as
recessed garages.
The applicant for the infill development at 132
Stanley Avenue contacted the Department in late 2007 with a proposal for a
seven-unit townhouse development featuring seven garages facing Queen Victoria
Street. At that time, the applicant was advised that such a configuration would
not be supported and advised the applicant to redesign the project in a manner
that was more compatible with the Guidelines, above. Various options were proposed,
including recessed garages and garages located at the rear of the units and
accessed from a driveway running parallel to Queen Victoria Street. In December 2007, the applicant submitted a
redesigned project. This version of the proposed development involved a
driveway behind the houses, and the reduction of the number of houses from
seven to six. Changes to the design were also undertaken at this time in order
to break up the mass of the building.
This version of the project was presented to a
well-attended public meeting in the community on January 8, 2008. The public’s
reaction to the project was unfavourable and prompted a redesign of the
project. The final version of the
project is included in Document 4.
The project now consists of two separate blocks
of three units each, separated by a green strip. The buildings are stylistically different; the south-westerly one
is evocative of the Arts and Crafts tradition. It has one unit facing Stanley
Avenue and two facing Queen Victoria and features, bracketed eaves, gabled bay
dormer windows and front veranda facing Stanley. Its contrasting brick and
masonry construction break up the building.
The other three-door row takes its cues from the flat roofed houses of
the District. It features a stone base with brick masonry above and a strong
cornice. Each building is set back 0.3
metres from the property line and three metres from the inner sidewalk
edge. There will be seven trees planted
between the buildings and Queen Victoria, three trees planted along Avon Lane
and three planted along Stanley Avenue.
The proposed project will require minor
variances to the Zoning By-law to allow it to proceed. The variances will
include relief from the Heritage Overlay that requires that a replacement
building be built "to the same height, bulk, size, floor area, spacing and
the same location as existed prior to its removal or destruction." The
underlying zone for this area is R5C (567) H10, a low-rise apartment zone. The
proposed development will need further variances related to lot area and
driveway width. The Committee of
Adjustment meeting to consider the request for minor variances will take place
after the application under the Ontario
Heritage Act has been considered by City Council. A site plan for this
project is also under consideration.
The multi-unit row is a housing type found
elsewhere in the New Edinburgh Heritage Conservation District. Examples of this
building type include Lansdowne Terrace, 157-167 MacKay Street,
constructed in 1876, a six‑door row; and a number of three-door rows
including 38-40 Stanley Avenue, 5-7 Thomas (constructed 1952); 15-17 Thomas/75
John Street (constructed 1941), 102-106 Stanley Avenue (constructed circa
1910), 19-23 Crichton Street (c 1903), 143- 147 Crichton Street (c 1870s
and 1916), 137-141 Stanley Avenue (constructed 1901), and 189-193 MacKay Street
(constructed 1877-1878) (see Document 6 for examples). In addition there are
other multi-unit rows in the parts of the neighbourhood that are not included
in the Heritage Conservation District, including two rows at Crichton Street
and Beechwood Avenue.
The architectural character of Queen Victoria
Street, the street that the development faces, is very mixed and reflects
different eras of development within New Edinburgh. In the immediate vicinity
of the proposed project, there are two flat-roofed semi-detached dwellings
(constructed circa 1905), four gable roofed buildings with either front or side
gables profiles (constructed 1880-1900) and an infill dating from the 1970s.
The block of Stanley Avenue to the north of the project features a similarly
mixed group of housing types, including wood and brick dwellings with their
gable end facing the street, and a three-door row. Given the rich variety of
building types in this sector of New Edinburgh, and the existence of three-door
units elsewhere in the district, the Department believes that two three-unit
buildings with different architectural expressions are an appropriate response
to the setting and respect Guideline 3.3ii. 3 above. Furthermore, the units are individually expressed, respecting
Guideline 3.3ii 4 above, which serves to break up the mass of the development.
Finally, there are no garage doors facing the street proposed for the project
thereby preserving the character of New Edinburgh as a neighbourhood in which
front doors and entryways are regularly spaced along the street edge, and are
not interrupted by garage doors.
The Department has no objection to the proposal
for new construction in the form of an infill development at 132 Stanley Avenue
because it largely respects the Guidelines, above, involves the removal of a
building previously determined to have no heritage significance, consists of
two, three-door rows, a building type common in the area and contributes to the
streetscape through the addition of new trees.
Cultural Heritage Impact Statement
In
accordance with Policy 4.6.3 of the Official Plan, a Cultural Heritage Impact
Statement (CHIS) was completed for this project (for complete CHIS, see
Document 6). The CHIS analysed the development within the context of the
Heritage Conservation District and its associated “Guidelines” and its impact
on the heritage conservation district.
It noted that there were positive impacts associated with the development
as it would animate Queen Victoria Street and Stanley Avenue,
follow types and forms found in the District; would contribute to diversity and
variety found in the District; would reflect the district vernacular and add to
the complexity of the streetscape and that the landscaping including paved
walkways and street trees would be pedestrian friendly. The CHIS also noted
that there were adverse impacts associated with the proposed development,
specifically the reduction in privacy for 128 Stanley Avenue and an increase in
traffic associated with the new dwellings.
In conclusion, the CHIS stated that
“… the
proposed infill development does not adversely impact the cultural heritage
value of the New Edinburgh Heritage Conservation District.”
CONSULTATION
Adjacent property owners and residential tenants were notified by letter of the date of the Local Architectural Conservation Advisory Committee and Planning and Environment Committee meetings and were provided with comment sheets to be returned to LACAC.
The Councillor is aware of this application under the Ontario Heritage Act.
The New Edinburgh Community Association (NECA) was consulted in the preparation of this report. NECA objected to the initial plans that featured a six-door row. The new plan was circulated to NECA but there was not sufficient time for the community to prepare full comments, however, NECA indicated that it continues to object to the development. A copy of NECA comments will be presented at the LACAC meeting.
Heritage Ottawa is aware of the application.
FINANCIAL IMPLICATIONS
N/A
APPLICATION PROCESS
TIMELINE STATUS
This application was completed
within the 90-day time period prescribed by the Ontario Heritage Act.
SUPPORTING DOCUMENTATION
Document 2 Aerial photograph
Document 3 Heritage Survey Form
Document 4 Site Plan
Document 5 Elevations
Document 6 Row Houses in New Edinburgh
Document 7 Cultural Heritage Impact Statement
DISPOSITION
The City Clerk's Branch, Council and Committee Services to notify the applicant/ agent (Debbie Belfie, D.G. Belfie Planning & Development Consulting Ltd., 21 Pinecone Trail, Stittsville, ON K2S 1E1) and the Ontario Heritage Trust (10 Adelaide Street, 3rd Floor, Toronto, Ontario M5C 1J3) of City Council's consent to construct two, three-door row houses at 132 Stanley Avenue in the New Edinburgh Heritage Conservation District.
BARRY PADOLSKY ASSOCIATES INC. ARCHITECTS
ARCHITECTS, PLANNERS, HERITAGE CONSULTANTS
Mercury Court, 377 Dalhousie Street, Ottawa, Ontario K1N 9N8
PHONE: (613) 241-7198 FAX: (613) 241-5782 E-MAIL: email@padolsky-architects.com
CULTURAL HERITAGE IMPACT STATEMENT
PROPOSED REDEVELOPMENT 132 STANLEY AVENUE
NEW EDINBURGH HERITAGE CONSERVATION DISTRICT, OTTAWA
- 132
STANLEY AVENUE: EXISTING CONDITIONS
The subject property is located on the corner of Stanley Avenue and
Queen Victoria
Street in the New Edinburgh Heritage Conservation District. It is a
rectangular lot
extending 47.3 meters from Stanley Avenue to River Lane on the west side
of Queen
Victoria Street. The lot has 18.3 meters of frontage on Stanley Avenue.
The existing house was constructed in 1967. It is a detached one-storey
home, clad with
rectangular stone and brick. The front door and two large bow windows
face Stanley
Avenue. An attached carport and driveway accessing Queen Victoria Street
are located
at the rear of the home. A vinyl shed is located at the rear of the
property close to River
Lane. In the City's Heritage Building Evaluation Survey, 132 Stanley
Avenue was placed
in Group 4, the lowest category. The house is typical of single
residences built in
Ottawa's suburbs in the 1960’s.
B. ARCHITECTURAL CHARACTER OF NEW EDINBURGH
The New Edinburgh Heritage Conservation District consists of a lively
mix of building
types including churches, schools, former commercial store fronts, large
Queen Anne
structures, row houses, singles, doubles, triples, and apartment
buildings. The one and a
half storey and two and a half storey front gabled structure is the most
common building
type in the district.
The heritage district has been slowly infilling and intensifying with
the introduction of
new housing, additions, and alterations through a process of scrutiny,
community
consultation, and City of Ottawa permits under the Ontario Heritage Act.
C. HERITAGE CONSERVATION DISTRICT GUIDELINES
The New Edinburgh Conservation District guidelines are intended to
encourage the
conservation of the existing historic fabric and encourage new
construction that is
complementary to the character of the area. The guidelines are intended
to promote the
enhancement of the New Edinburgh streetscape and celebrate the
"village character".
The New Edinburgh Heritage Conservation District Plan includes the
following key
guidelines for new construction:
1. Demolished buildings must be replaced by new buildings of the same
height,
building size, floor area and spacing as existed prior to demolition
(City of
Ottawa Zoning Bylaw 1998).
2. New construction on recent lots (prior to 1978) should respect front
and side
yard set backs of adjacent heritage buildings to maintain the character
of the
streetscape.
3. New construction should acknowledge the character of adjacent
properties and
reinforce the character of the streetscape.
4. New buildings should be articulated so that they read as smaller
elements.
5. Parking should be in recessed garages. Garage doors that dominate the
street
will not be approved.
D. PROPOSED INFILL DEVELOPMENT PROJECT
The proposed residential infill project will consist of two
three-storey, ground-oriented
"triples". The southern triple will have one unit with an
entrance on Stanley Avenue and
two units with entrances on Queen Victoria Street. The northern triple
will have three
addresses on Queen Victoria Street.
Parking is located in recessed garages accessed by a lane along the
western property line
at the rear of the units.
A review of the architect’s drawings has revealed that:
1. The architectural design is “contemporary” with references to the
forms
and elements familiar within the district.
2. The southern "triple" features gabled roofs and a columned
front porch
along Stanley Avenue to reinforce the established rhythm of the gabled
houses along the street. The Victoria Street elevation features three
gabled
bays and recessed entrances to break-up the massing and provide a
picturesque silhouette. Arched windows on the ground floor level and the
finely detailed windows on the second and third floors are designed to
add richness to the building's appearance. The residences are clad in
brick
and wood rising from a stone base in a composition which adds to the
visual complexity.
3. The northern "triple" features flat roofs drawing from the
architectural
language of other flat roof residences in the district. These three
residences
are designed to have a separate identity from the southern
"triple". This
approach contributes to the diversity of the architecture on Victoria
Street.
The elevation features three bays with raised parapets and recessed
entrances to break up the massing and to express the individuality of
each
residential unit. The residences are clad in brick and stone. The two
triples use cladding materials from the existing palate of finishes
typical of
the New Edinburgh Heritage Conservation District.
4. A new fence will be constructed along the new service lane on the
west side
of the property. Landscaping will be introduced along Stanley Avenue,
Queen Victoria Street, and River Lane. Eleven trees will be planted
along
the property lines (on City property) to contribute to the leafy
character of
the village.
E. IMPACT OF PROPOSED DEVELOPMENT
The positive impact of the proposed infill development would be that:
1. The new residences face and animate Queen Victoria Street and Stanley
Avenue.
2. The building type and forms are familiar in the pattern of
development in
the district.
3. The two "triples" are different in form from each other and
contribute to the
diversity and variety found in the district.
4. The architectural forms and character take visual cues from the
district
vernacular, and are articulated to add complexity to the streetscape
through the use of projections, recesses, gables, and parapets.
5. The exterior cladding, colours, and textures derive from the district's
palate
of material.
6. The heights are within the permitted height of the underlying zoning.
7. The introduction of landscaping along the streets, interlocking paved
walkways to each residence, and street trees add to the
pedestrian-friendly
ambience of the streetscapes.
8. Parking is located in the rear of the residences in enclosed recessed
garages.
9. The existing anonymous 1960’s "suburban" residence would be
replaced by
a redevelopment in which architectural forms reinterpret the local
vernacular, are richer in detail, and contribute to the district
streetscape.
The adverse impact of the proposed infill development would be that:
1. There would be a reduction in the privacy currently enjoyed by the
property at 128 Stanley Avenue.
2. There would be an increase in vehicular activity adjacent to 128
Stanley
Avenue and 54 Victoria Street at the corner of River Lane.
F. CONCLUSION
In my opinion, the proposed infill development does not adversely impact
the
cultural heritage value of the New Edinburgh Heritage Conservation
District.
Barry Padolsky
B. Arch., M. Sc. (Urban Design),
OAA, FRAIC, RCA, CAPHC
February 11, 2008