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
10 January 2010 / le 10
janvier 2010
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 : John Smit, Manager/Gestionnaire, Development
Review-Urban Services/Examen des projets d'aménagement-Services urbains,
Planning and Growth Management/Urbanisme et Gestion de la croissance
(613)
580-2424, 13866 John.Smit@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 132-138, 152-158 and 160 Bank Street,
properties designated under Part IV and V of the Ontario Heritage Act and associated new construction in the Bank
Street Heritage Conservation District in accordance with the drawings by B+H
Architects included as Documents 9-13 received on December 22, 2009.
2.
Delegate approval of subsequent minor changes to the General Manager
of Planning and Growth Management.
3.
Require the posting of a financial security in the amount of $1.6
million required to stabilize and restore the existing brick façades prior to
the issuance of construction permits for demolition or excavation.
4.
Issue the Heritage Permit with a two-year expiry from the date of
issuance.
(Note: The statutory 90-day timeline for consideration
of this application under the Ontario
Heritage Act will expire on March 22, 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 de
modification des 132-138, 152-158 et 160, rue Bank, propriétés désignées en
vertu des parties IV et V de la Loi sur
le patrimoine de l’Ontario, jumelée à un projet de construction dans le
district de conservation du patrimoine de la rue Bank, conformément aux croquis
de B+H Architects, joints en tant que documents 9 à 13 et reçus le 22 décembre
2009.
2.
De déléguer au directeur général
d’Urbanisme et Gestion de la croissance le pouvoir d’approuver d’éventuels
changements mineurs.
3.
De demander le dépôt d’une garantie
financière de 1,6 million de dollars, nécessaire pour stabiliser et restaurer
les façades de brique existantes, avant l’émission des permis de construire
requis pour des travaux de démolition ou d’excavation.
4.
De délivrer le permis pour bâtiment patrimonial, d’une durée de deux
années à partir de la date de délivrance.
(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 22 mars 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.)
Assumptions and Analysis:
This report deals with a statutory application under Parts IV and V of the Ontario Heritage Act to approve the alteration of the heritage buildings located at 132-138, 152-158 and 160 Bank Street together with associated new construction in the Bank Street Heritage Conservation District. Heritage applications are considered by City Council following their review by the Ottawa Built Heritage Advisory Committee (known as the Local Architectural Conservation Advisory Committee until January 13, 2010). The project by Morguard Investments involves the stabilization and restoration in situ of the façades of three heritage buildings and their integration into a 17-storey office building containing retail uses at grade. The new building will form a third office tower added to an existing node of two towers previously constructed by Standard Life. This project will enhance the streetscape character of Bank Street within the Bank Street Heritage Conservation District through the sensitive integration of the three restored heritage façades as part of a new office development.
Legal/Risk Management Implications:
§
Statutory application under Part IV and V of the Ontario Heritage Act.
§
Ongoing heritage-related development review function of
City and Planning and Growth Management.
§
Application is time-sensitive and must be dealt with by
Council within 90 days of receipt of application.
Technical Implications:
N/A
Financial Implications:
There are no financial implications to the City. Developer must post a financial security of $1.6 million with the City to ensure the proper stabilization and restoration of the existing heritage building façades prior to the issuance of any building permits for demolition, excavation or construction.
Public Consultation/Input:
The Ward Councillor, Diane Holmes, was consulted on this project.
Adjacent property owners were notified by letter of the date of the Ottawa Built Heritage Advisory Committee (OBHAC) and Planning and Environment Committee meetings and were provided with comment sheets to be returned to the OBHAC.
The Centretown Community Association is aware of this application.
The Bank Street Promenade BIA is aware of this application.
Heritage Ottawa is aware of
this application.
Hypothèses et analyse :
Le
présent rapport traite d’une demande prévue par les parties IV et V de la Loi sur le patrimoine de l’Ontario, en
vue d’approuver la modification des édifices patrimoniaux situés aux 132-138,
152-158 et 160, rue Bank, jumelée à un projet de construction dans le district
de conservation du patrimoine de la rue Bank. Les demandes relatives au
patrimoine sont prises en compte par le Conseil municipal après avoir été
examinées par le Comité consultatif sur le patrimoine bâti d’Ottawa (connu sous
le nom de Comité consultatif sur la conservation de
l’architecture locale jusqu’au 13 janvier 2010). Le projet de la firme
Morguard Investments consiste à stabiliser et à remettre en état les façades de
trois édifices du patrimoine, et à les intégrer dans un immeuble à bureaux de
17 étages abritant au rez-de-chaussée des commerces de détail. Le nouvel
édifice formera un troisième immeuble à bureaux qui viendra s’ajouter à un
noyau existant de deux tours, construites par Standard Life. Ce projet mettra
en valeur le paysage de la rue Bank, dans le district de conservation du
patrimoine de la rue Bank, grâce à une intégration adaptée des trois façades
historiques restaurées dans le cadre d’un nouvel aménagement de bureaux.
Incidences juridiques / concernant
la gestion des risques :
§
Demande prévue par les parties IV et
V de la Loi sur le patrimoine de
l’Ontario.
§
Examen continu des demandes
d’aménagement liées au patrimoine, assuré par le Service de l’urbanisme et de
la gestion de la croissance de la Ville.
§
La demande est soumise à un délai et
doit donc être traitée par le Conseil dans les 90 jours suivant sa réception.
Incidences techniques :
S. O.
Répercussions financières :
Pour ce projet, la Ville ne subit aucune
répercussion financière. Le promoteur doit remettre à la Ville une garantie
financière de 1,6 million de dollars, nécessaire pour stabiliser et restaurer
les façades patrimoniales existantes, avant l’émission des permis de construire
requis pour des travaux de démolition, d’excavation ou de construction.
Consultation publique / commentaires
:
La conseillère du quartier, Diane
Holmes, a été consultée à propos de ce projet.
Les propriétaires des terrains adjacents ont
été avisés par lettre de la date des réunions du Comité consultatif sur le
patrimoine bâti d’Ottawa (CCPBO) et du Comité de l’urbanisme et de
l’environnement, et nous avons fourni des fiches de commentaires à retourner au
CCPBO.
L’Association communautaire du centre-ville est
au courant de cette demande.
La ZAC de la promenade de la rue Bank est au
courant de cette demande.
Patrimoine
Ottawa est au courant de cette demande.
This report deals with an application under the Ontario Heritage Act by Morguard Investments to alter the designated heritage properties located at 132‑138 Bank Street, 152-158 Bank Street and 160 Bank Street and to construct a commercial tower between and behind these properties. A location plan is included as Document 1. The project, called Bank and Slater Tower 3 or BST3, is designed by B+H Architects with Robertson Martin Architects as heritage consultant. The first two towers located to the west of the subject property were built by Standard Life in 1993. It was their intention to construct a third tower on the existing site. The entire property consisting of the two existing towers and subject site was sold to Morguard Investments in 2006 and they are completing the site redevelopment. An aerial photo is included as Document 2.
Applications under the Ontario Heritage Act require the approval of City Council following consideration by the Ottawa Built Heritage Advisory Committee (OBHAC), previously called the Local Architectural Conservation Advisory Committee (LACAC) until January 13, 2010.
The property at 132-138 Bank Street at the southwest corner of Slater Street is individually designated under Part IV of the Ontario Heritage Act through By-law 269-99. The Statement of Reason for Designation is included as Document 3. The remaining properties are designated under Part V of the Ontario Heritage Act as part of the Bank Street Heritage Conservation District through By‑law 175-2000. The heritage survey forms for all three properties are included as Document 4. A summary description of the heritage character of the area as described in the Central Area West Heritage Conservation District Study and Plan is included as Document 5. The full study was previously distributed to members of LACAC and is on file with the OBHAC Co-ordinator (Document 6).
The heritage designation of 132-138 Bank Street took place in 1999 following an application from Standard Life to demolish their buildings at 142 Bank, 144-148 Bank Street and 234‑250 Slater Street.
LACAC recommended the heritage designation of 132-138 Bank Street, 142 Bank and 144‑148 Bank Street. City Council supported the heritage designation of 132-138 Bank Street but not the others which were subsequently demolished. Standard Life retained 132-138 Bank Street, the distinctive two-storey, round-headed window frames of the Heagle Building located at 144-148 Bank Street and created a landscaped plaza on the empty lot facing Bank Street. The round-headed window frames of the Heagle Building were installed in the manner of Tin House Court in the By Ward Market as a public art feature on the south wall of 132-138 Bank Street. Standard Life committed to attempting to incorporate these architectural elements as part of future new development on Bank Street in a manner that would be visible from Bank Street. Morguard has honoured this commitment by installing the window frames inside the glazed walls of the new development and in the same location as the Heagle Building. This is illustrated in the Bank Street elevation included as Document 12.
The Bank Street Heritage Conservation District was approved by the former City of Ottawa City Council in 2000 through By-law 175-2000 and, notwithstanding appeals to the by-law, was in force from the date of Council’s passage of the by-law by virtue of an interim Order from the Ontario Municipal Board (OMB). The appeals to the designation were largely based on concerns from property owners in this high-rise part of the downtown regarding the future placement of a heritage overlay under the zoning by-law on the district in accordance with Official Plan policy. Mediation continued over seven years resulting in a contingency order that prohibits a heritage overlay on the properties designated in this area under Part V of the Act through By‑law 175‑2000 until January 1, 2022. The full text of the settlement is described in the following report to Council:
http://ottawa.ca/calendar/ottawa/citycouncil/occ/2006/04-12/pec/ACS2006-CRS-LEG-0004.htm
The heritage conservation district designation of Bank Street under the Ontario Heritage Act exists to enable control over the alteration/demolition of the existing properties and the design of new construction. The height of new construction over the site, however, is governed by the existing zoning that permits up to 17 storeys except for the footprint of the individually-designated building at 132-138 Bank Street that is subject to the heritage overlay.
DISCUSSION
The project is described in detail in the sections of the report that follow. It will involve the retention and restoration in situ of the façades of the three existing heritage buildings along Bank Street. Missing architectural features including the secondary cornice and brick pilasters at the first storey will be reconstructed. A 17-storey office tower will be constructed between and behind these façades. Perspective views are included as Documents 9, 10 and 11 and street elevations as Documents 12 and 13.
Robertson Martin Architects was retained by Morguard Investments Limited
to provide a Cultural Heritage Impact Assessment (CHIS) for this project
in accordance with Official Plan policy 4.6.1.2. The full document is included
as Document 7 of this report. An extract follows:
“Cultural Heritage Impact Statement for 132-138 and 152-160 Bank
Street,
Bank Street Heritage Conservation District, Ottawa.
Robertson
Martin Architects
2. Identification of the Significance and Heritage Attributes of the
Cultural Heritage Resource
The
Bank Street Heritage Conservation District Study establishes the
significance and key heritage of the District. The historic scale and rhythm of
the subject properties is visible in surviving frontages within the block and
adjacent blocks. Their key features (from Study) are:
Building to lot lines,
Three storey heights,
Recessed store and building entrances for commercial spaces,
Large pane street level glazing,
Unity of façade composition, with treatment of ground floor distinct from upper
stories,
Signage band and associated cornice
detail provides a transition zone between storefront and upper façade areas,
Elaborated cornice caps façade, and
Access to upper stories typically gained via separate street level entrances.
Both
buildings have lost all heritage ground floor storefront building fabric
including glazing, signboards and the intermediate cornice banding; in their
place are a series of very unsympathetic and unattractive contemporary
replacements. The articulated brick masonry façades, the upper cornice and
parapet caps are in poor to fair condition and require various conservation
processes; however, most original fabric is still extant.
A
decorative roof tower that anchored the corner of 132-138 Bank Street is
believed to have been removed sometime in the mid-century, based on limited
available photographic documentation.
The
building interiors are in poor condition, with almost all heritage character
removed. Save for a fragment of tin metal ceiling tile and a partial newel
post, the heritage interiors and traditional interior divisions have been
demolished.
Arched
wood window frames removed from a heritage building demolished south of 132‑138 Bank
Street have been mounted on the south brick wall of 138 Bank Street
3. Description of the Proposed Development or Site Alteration
The
development proposes the retention in-situ of both heritage façades
along Bank Street as well as the Slater portion of the 132-138 Bank Street
corner building. The remainder of the building structures on the interior lot
will be demolished. All masonry façade elements will be restored and conserved,
along with upper cornice woodwork and metalwork. New intermediate cornices and
traditional signage will be introduced above the retail ground floor. The
ground floor storefronts will be reintroduced in contemporary materials by
following traditional proportions and sizing. New clad wood thermal units will be
introduced in existing openings and will follow appropriate period detailing of
double hung sash type windows. The
heritage properties form a three-storey podium, or base, above which the
massing of the larger office building is set back on Bank Street approximately
2.4 m from the heritage façades for a two-storey strip. The heritage elements
act as the ‘datum’ for the podium. Above this recessed portion, the building
then projects out towards the street, resulting in a setback of approximately
1.5 m from the heritage façades for the remainder of the office floors. On the
Slater Street elevation, the office entrance vestibule is recessed
approximately 3.5m, the 2nd, 3rd and 4th floors are recessed approximately 9.0
m and, for the 5th floor and above, there is an angled façade where the recess
varies.
Portions
of the heritage masonry façades will ‘return’ back into the larger
seventeen-storey development and be visible through the highly transparent
infill glazing at the podium; this will serve to make the heritage elements
have three-dimensional appearance and appear integrated within the overall
development rather than simply façades attached onto the infill development.
4. Assessment of Site Alteration Impacts
Assessment
of site alteration impacts is made both by measuring the impact of the proposed
new development on the significance and heritage attributes of the designated
District defined in the Bank Street Heritage Conservation District Study
within the framework of the applicable conservation principles for infill
designed in the Study document and within the Ontario Heritage Tool Kit
manuals.
The
key recommendation of the study is retention of the ‘main-street’ character of
Bank Street, as articulated above, and that ‘any new frontages to large scale
development should closely maintain the three-to-five storey pattern of height
and closely spaced building entrances characteristic of the street.’
The
District Study document recognizes that there is considerable variety
within Uppertown’s streets and emphasizes that the most important source of
precedent is that of the adjacent neighbourhood and street. Recommendations for
architectural conservation and infill guidelines and strategies (Part 7), with
the goal of ‘compatibility’, include the following:
1. ‘In approving developments,.. the City of Ottawa should in general
promote projects that aid the conservation of architectural forms and details
particular to the precinct and district context.’
2. Notable features such as listed in Section 2 above, should be
recognized and respected
3. Make street frontage bands, to enhance the definition and continuity
of existing public street space on historic streets
4. Property assemblies with wide frontages should be encouraged to
divide up their frontages along the lines of historic lot dimensions, to
enhance the variety of existing public views and street-wall definition on
historic commercial streets.
5. Address the issue of reduced presence or retail activity on the
street at micro-scale by making frontages at grade, distinct from upper
elevations to enhance the definition, continuity and variety of existing public
views and street-wall definition on historic commercial streets.
6. New buildings should be set back a minimum of 10m from the heritage
buildings being preserved.
7. New building elements on Bank Street should have heights not
exceeding four stories and that elements higher than this elevation should be
set back.
8. Servicing for new buildings should be off Slater Street
Taking
the above together with the points made in section 2 above (Identification
of the Significance and Heritage Attributes of the Cultural Heritage Resource),
the following impacts of the proposed development on 132-138 and 152-160
Bank Street may be noted:
The
proposed development has the following negative impacts:
The design does not retain the entire massing of the heritage resources and,
rather, focuses primarily on the façade elements.
The design does not respect the recommended 10 m minimum setback for infill
development, in the context of designated heritage buildings.
The
proposed development has the following positive impacts:
Although it does not retain the entire massing of the heritage resources, the
principal streetscape façade elements within the visual landscape are retained,
restored and conserved in-situ. Additionally, the limited-depth masonry
returns, back into the larger eighteen-storey development, are visible through
the highly transparent infill glazing at the podium and serve to allow the
heritage elements to maintain their texture and individuality and integrate
within the overall development with the appearance of three-dimensional
elements, rather than simply façades attached to the infill.
The contemporary infill between the two heritage buildings matches their
height, does not overwhelm the adjacent heritage properties and, thus, allows
them to play the primary and greatest role in the revitalized streetscape
experience.
Although it does not respect the recommended 10 m minimum setback, the 3m
recess of the two stories above the heritage buildings allows a successful
differentiation between the heritage fabric and the larger development.
The proposed design is very successful in responding to the Heritage
Conservation District Study list of ‘notable features’ to protect, in terms
of maintaining recessed store and building entrances for commercial spaces and
large pane street level glazing.
The proposed design is very successful in responding to the Heritage
Conservation District Study list of ‘notable features’ to protect, in terms
of maintaining the unity of façade composition, with the treatment of ground
floor appearing distinct from the upper stories and the signage band and associated
articulated cornice detail providing a transition zone between storefront and
upper façade areas.
The proposed design breaks down the dominant mass of a large infill development
with more traditional rhythms of storefront property widths and human-scaled
entrances.
The removed arched windows, relics of another demolished building along Bank
Street, are reintegrated within the development as sculptural items behind the
contemporary low profile glazing and in their former location, evoking the
absent building.
All building servicing is located away from the primary pedestrian façades.
5. Consideration of Alternatives, Mitigation and Conservation Methods
Limited
retention of heritage fabric.
In
consideration of the identified negative impact of the development which does
not retain the entire massing of the heritage resources and, rather, focuses on
the façade elements only, there must be consideration for the realities of the
existing building condition and configuration in the context of what is a
relatively small downtown urban site, zoned for high-rise construction.
The
base buildings are in poor condition and constructed from combustible materials
not conducive to current structural and building code requirements. Maintaining
marginal existing fabric to the rear of the façades while rock excavation and
construction of an underground parking garage takes place is an extremely
challenging proposition.
Although
the Building Condition Report for 152-160 Bank Street, prepared by Morrison
Hershfield dated April 9, 2009, concluded that it would be that it would be
‘costly and potentially impractical to attempt to keep only the east façade’
(i.e advocating complete dismantling), after consultation with B+H, Morguard
and Adjelian Allen Rubeli, the Structural Engineer engaged to advise on
retaining the buildings in-situ, an ambitious solution has been devised that
seeks to support the façades with cantilevered steel members anchored into the
sidewalk outside of the larger excavation( see Document 14). Due to the
fragility of the masonry façades in some areas, full stabilization and
consolidation of the masonry is planned before they are supported.
At
conclusion of work, the restored façades and sidewall returns will be
integrated into and supported by the infill development.
Reduced
setback
While
the proposed development does not respect the recommended 10 m minimum setback
of infill development, a full setback of this magnitude would leave little
remaining property behind the façades available for development and would
certainly not allow usable or functional floorplate configurations. In this
sense, the economic viability of a project which restores heritage fabric and
revitalizes the better part of a block of downtown urban streetscape will be
limited. The proposed development allows the continuity of heritage fabric and
streetscape while still sufficiently differentiating it from the contemporary
infill set back from the property lines. The street viewscapes to and from
surrounding streets will be greatly improved.
The
above approach is in keeping with the District Guidelines which recommend that
the City of Ottawa have some leeway where ‘strict application of zoning
requirements for new building form, impair or pre-empt conservation of heritage
buildings’.
6. Summary Statement and Conservation Recommendations
The proposed design proposal, by virtue of its
sympathetic massing, restoration and conservation of valuable heritage fabric
and streetscape revitalization, is in conformity with the accepted principles
of infill (as presented in the Ontario Heritage Tool Kit provisions for
infill), and is equally in conformity with the requirements of the Central
Area West Heritage Conservation District Study. The design proposal offers
positive impacts on the Bank Street Precinct, and the immediate environs of the
subject property.
The
identified negative aspects are not felt to detract from the suitability and
viability of the design proposal, are limited in nature and reflect the reality
of the base building construction and a complex project site in an urban
location.”
The overall development is further described in a covering letter from FoTenn Consultants Inc.
included as Document 8. Extracts are
included below:
“Retail
uses are proposed at grade along Bank Street, extending around the building
along a portion of Slater Street. These retail uses will have direct street
access. The infill retail frontage, between the heritage façades, is set back
to allocate larger pedestrian space for retail spill over and to accentuate the
reading of the infill podium piece as a floating element.
In
addition to service and administrative components, the ground floor will
feature an internal lobby and atrium with a prominent entrance along Slater
Street, directly west of the heritage façade. This area will include an
overlooking mezzanine and a retail space within the interior portion of the
building, directly adjacent to the atrium.
Additional Applications;
In
November 2009, the following two (2) development applications were submitted to
the City of Ottawa:
1.
A Site Plan Control application (Application no. D07-12-09-0197) to construct
the above discussed building and underground parking structure, while retaining
the heritage fabric of the existing buildings and;
2.
A Zoning By-Law Amendment application (Application 2.
A Zoning By-Law amendment application (Application no. D02-02-09-0093) to
address the following zone provisions:
1) Reduce the minimum aisle width from 6.7 m to 6.245 m in certain
locations of the underground parking area.
2) Reduce the minimum parking for the proposed development from
230 spaces to 186 spaces (deficiency of 44 spaces). The Zoning By-law Amendment
must also address the fact that the existing buildings (Standard Life 1 &
2) are currently legally non-complying and their parking will be further
reduced by 9 spaces.
3) Amend the heritage overlay provisions.
The following provides the Local Architectural Conservation
Advisory Committee (LACAC) an inventory of materials, signage and lighting to
be incorporated into the preserved building elevations and the new infill
building:
Heritage Streetscape (132-138 Bank Street, 152-158 and 160 Bank
Street):
_ Storefront: Aluminum Storefront
System with Granite Sill; Colour Anodized Bronze with shadow gap at transition
with Heritage brick
_ new cornices between the ground
and second floor constructed of fibre reinforced cement with texture and colour
to emulate limestone
_ Signage: Anodized Metal Signage Board set flush with Heritage
façade
_ Accessories: Fabric Awning and Banners:
_ Windows: Reconstructed fenestration according to original
Heritage design intent New Streetscape:
_ Storefront: Aluminum Storefront System with recessed metal sill
_ Soffit: Terracotta with feature down lighting
Podium Base:
_ Curtain Wall System
with four sided silicon and spandrel panels.
_ Soffit and Fascia: Terracotta edging and lining along feature
recesses at the Bank and Slater façade
_ Entry Canopy: Terracotta
Upper Podium:
_ Recessed Curtain wall consisting of low iron glass and four
sided silicon with spandrel panels.
_ Green Roof: Glass Railing set
back from Heritage Cornice with stone pavers, feature planters, exterior
lighting and seating
Tower:
_ Bank Building Volume: Curtain
Wall System with vertical aluminum mullion caps accented with aluminum
horizontal bands
_ Slater Building Volume: Curtain Wall System with Ceramic Frit
Pattern Roof:
_ Stone Cladded suspended roof plane with feature up lighting
It is also important to note that any repair or replacement of
bricks on the retained façades will be done using matching recovered brick from
demolished portions of the rear of the buildings. The mortar of the heritage
buildings will be of the appropriate strength for the existing brick with
colour to match. Any replacement of damaged stone or repair of same will be to
match existing. All existing façades will be entirely cleaned and made good.”
Relationship to the Standards and
Guidelines for the Conservation of Historic Places in Canada
City
Council on the advice of LACAC made the following recommendation in September
2008:
“Adopt
The Standards and Guidelines for the Conservation of Historic Places in
Canada as amended from time to time as a policy document to assist with the
planning, stewardship and conservation of designated heritage resources within
the City of Ottawa.”
The
reasons behind this recommendation as described in the report were as follows:
“The Standards
and Guidelines for the Conservation of Historic Places in Canada are the
first-ever pan-Canadian benchmark for heritage conservation practice in this
country. The Standards and
Guidelines are not intended to replace the statutory role of the Ontario Heritage Act, regulations under
the Act, or the City of Ottawa
Official Plan. They are also not
intended to replace the role of conservation specialists or to provide detailed
technical instructions. They can,
however, provide a common benchmark to guide restoration and rehabilitation of
historic places, ensuring that heritage values are preserved and that these
historic places continue to be useful resources in the life of a community.”
The Standards and Guidelines, therefore, provide guidance in the context of
and following from the more detailed guidelines contained in the Official
Plan and Central Area West Heritage Conservation District Study related to the
Bank Street Heritage Conservation District itself. The analysis below should,
therefore, be seen in the context of the more detailed and rigorous analysis of
the Cultural Heritage Impact Statement described earlier in this report.
The proposal conforms to the following Standards and Guidelines in whole or
part:
Section – Guidelines for Buildings
Exterior Masonry…
Documenting p. 7, Repairing and stabilizing p. 9, 10, Designing for the
Replacement of Missing Historic Features p. 12,
Storefronts…Documenting
p. 35, Stabilizing p. 35 Protecting and maintaining p. 35 Replacing in
kind missing parts p. 36
Section 4 - Other
Considerations
New Additions to Historic Places p. 8
· Constructing a new addition
to retain as many of the historic materials as possible and to ensure that the
character-defining features are not obscured, damaged, or destroyed, or the
heritage value undermined.
·
Designing a new addition in a manner that draws a clear
distinction between what is historic and what is new.
·
Considering the design for an attached exterior addition in terms
of its relationship to the historic place as well as the historic district or
neighbourhood. Design for the new work may be contemporary or may reference
design motifs from the historic place. In either case, it should be compatible
in terms of mass, materials, relationship of solids to voids, and colour, yet
be distinguishable from the historic place.
· Placing a new addition on a
non-character-defining portion and limiting its size and scale in relationship
to the historic place.
·
When required for a new use of a building, designing a rooftop
addition that is set back from the wall plane such that it is as inconspicuous
as possible when viewed from the public realm.
The full text of the Standards and Guidelines can be accessed at:
http://www.pc.gc.ca/eng/docs/pc/guide/nldclpc-sgchpc.aspx
Design Review Panel Comments
The comments of the Design Review Panel regarding this project are included
as Document 15 to inform and advise LACAC. Point 2.6 discusses the City’s firm
position that the existing façades should be retained in-situ and point 3.3
outlines the intention to reinstate the original brick storefront pilasters by
extending the existing pilasters on the upper storeys downward.
Recommendation 1 -
Conclusion
The Department of Planning and Growth Management is highly supportive of
this application as it retains and enhances the heritage character of the Bank
Street Heritage Conservation District in conformance with the guidelines of the
Central Area West Heritage Conservation District Study, Official Plan,
Ontario Heritage Toolkit, Standards and Guidelines for the
Conservation of Historic Places in Canada, as more fully described in the
Cultural Heritage Impact Statement by Robertson Martin Architects.
A project of this scale will require some minor changes between the time of the initial heritage approval by Council and the submission of a building permit. It is expected, for example, that there will be refinement of the detailing of the secondary cornices and windows and potential changes to storefront entrances and signage depending on final tenancies.
A financial
security in the amount required to stabilize, brace, and restore the existing
brick façades is required as part of the Site Plan Control Agreement and will
need to be in place prior to the issuance of a building permit for any
demolition activity on the site. This security will revert to the City in the
event that the façade retention is not completed for any reason. This security
is required in acordance with the Official Plan policy described below:
2.5.5.21. In
addition to requiring specific assessments as described above, the City will
support its objective to conserve cultural heritage resources and to promote
the stewardship of those resources by:
d. Entering into
registered agreements with the owners of such designated properties if the City
deems that financial securities are required from an owner to ensure the
retention and conservation of heritage properties as part of a development
approval. The amount of such financial securities to will be determined by a
qualified heritage architect, and to be sufficient to ensure completion of the
agreed-upon stabilization and conservation work based on the cost of the
development and the costs associated with the conservation of the heritage
resource;
$1.6 million has
been identified by the applicant to meet the Official Plan requirements
specified above.
The Ontario
Heritage Act does not specify an expiry date for a heritage permit issued
under the Act. This recommendation will seek to ensure the project is completed
in a timely manner and is consistent with the practice in other Ontario
municipalities. Should a building permit not be issued within two years of the
date of issuance of the heritage permit then a new application under the Ontario
Heritage Act will be required.
RURAL IMPLICATIONS
N/A
CONSULTATION
Adjacent property owners were notified by letter of the date of the Ottawa Built Heritage Advisory Committee (OBHAC) and Planning and Environment Committee meetings and were provided with comment sheets to be returned to the OBHAC.
The Centretown Community Association is aware of this application.
The Bank Street Promenade BIA is aware of this application.
Heritage Ottawa is aware of this application.
The comments from the Ward Councillor are
listed below.
1.
I support the
restoration of the heritage façades at 132-138 and 152-158 and 160 Bank Street.
It is disappointing that, based upon the documentation provided by the attached
historic photograph, the full (secondary) cornice and corner tower of 132-138
Bank Street could not be restored.
2. These façades must be retained in-situ
during the construction phase.
There are no legal/risk management implications associated with this report
The Strategic Plan Objectives listed below have been addressed in this report.
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.
N/A
FINANCIAL IMPLICATIONS
Posting of a financial security in the amount of $1.6 million will be required
to stabilize and restore the existing brick façades prior to the issuance of
construction permits for demolition or excavation.
This application
was completed within the 90-day time period prescribed by the Ontario Heritage Act.
The statutory 90-day timeline for
consideration of this application under the Ontario Heritage Act will
expire on March 22, 2010
SUPPORTING DOCUMENTATION
Document 1 Location Plan
Document 2 Aerial Photo
Document 3 132-138 Bank Street Statement of Reason for Designation, By-law 269-99
Document 4 Heritage Survey Forms 132-138, 152-158, 160 Bank Street
Document 5 Uppertown’s Essential Heritage Character p. 132 of Central Area West Heritage Conservation District Study and Plan
Document 6 Central Area West Heritage Conservation District Study and
Plan by Mark Fram and Associates, December 1999 (distributed previously to
LACAC and on file with LACAC Co-ordinator)
Document 7 Cultural Heritage Impact Statement for
132-138 and 152-160 Bank Street prepared by Robert Martin Architects,
received December 22, 2009
Document 8 Letter from FoTenn Consultants Inc
Document 9 Perspective View at Street Level looking South West from Bank at Slater (titled view from North East)
Document 10 Perspective View of Entire Project looking South West from Bank at Slater (titled view from North East)
Document 11 Perspective View at street level looking South East from Slater
Document 12 Bank Street elevation
Document 13 Slater
Elevation
Document 14 Section illustrating in-situ façade
stabilization
Document 15 Downtown Design
Review Panel. Minutes November 12, 2009
DISPOSITION
City Clerk and
Solicitor Department, Legislative Services to notify the applicant, property
owner and the Ontario Heritage Trust (10 Adelaide Street East, 3rd
Floor, Toronto, Ontario, M5C 1J3) of Council’s decision.