Report
to/Rapport au :
Planning and Environment Committee
Comité de l'urbanisme et de
l'environnement
and Council / et au Conseil
21 December 2005 / le 21 decembre 2005
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 : Grant Lindsay, Manager/Gestionnaire
Planning and Infrastructure Approvals/Approbation
des demandes d'aménagement et d'infrastructure
(613) 580-2424 x 13242, grant.lindsay@ottawa.ca
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SUBJECT: |
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OBJET : |
REPORT
RECOMMENDATION
That the Planning and Environment
Committee recommend Council approve the Sandy Hill Heritage Study Terms of
Reference in Document 1 and 2 and authorize the initiation of a Request for
Quotations and Proposals in accordance with that Terms of Reference.
RECOMMANDATION DU
RAPPORT
Que le Comité de l'urbanisme et de
l'environnement recommande au Conseil d'approuver le mandat de l'étude sur le
patrimoine de la Côte-de-Sable, énoncé dans les documents 1 et 2, et
d'autoriser la publication d'une demande de prix et de propositions
conformément à ce mandat.
Local Architectural Conservation Advisory Committee Recommendation - 12 January 2006
LACAC unanimously supports the departmental
recommendation.
BACKGROUND
On April 26, 2005 City Council approved a report
dealing with the disposition of funds arising from a prosecution resulting from
the demolition of heritage buildings on the Nicholas Waller Triangle without
the benefit of municipal permits and contrary to development agreements with
the City. A settlement was subsequently agreed to by Council and the funds were
allocated to four projects.
One of the four projects approved by
City Council was a Heritage Study of Sandy Hill. The purpose of that heritage
study was to carry out research on heritage properties in Sandy Hill that had
not been examined to-date, to develop management guidelines to assist with the
management of existing and future Heritage Conservation Districts and to
identify buildings and groups of buildings that might be considered for
designation under Part IV or V of the Ontario Heritage Act. The study would be
carried out by a consultant under the direction of the Planning and Growth
Management Department in accordance with Terms of Reference to be approved by
Council following review by LACAC and Planning and Environment Committee. The study was supported in principle by the
Ward Councillor, Sandy Hill Community Association (Action Sandy Hill), and the
City of Ottawa Local Architectural Conservation Advisory Committee (LACAC) at
the LACAC meeting of December 9, 2004.
DISCUSSION
Recommendation 1
The Terms of Reference included as
Document 1 outline the detailed requirements of the Study. The key objectives
are as follows :
·
researching
and documenting the properties constructed in the area prior to 1950 which have
not been researched to this point ;
·
identifying buildings and groups of buildings, beyond
those already designated, which could be designated as new heritage conservation districts under
Part V of the Ontario Heritage Act or as individual heritage properties under
Part IV of the Ontario Heritage Act; and
·
preparing
a Heritage Conservation District Plan in order to manage the existing five
heritage conservation districts and any new districts that might be identified
as part of this study.
The City of Ottawa Official Plan,
Section 2.5.5.2, says "Groups of buildings, cultural landscapes and areas
of the City will be designated under Part V of the Ontario Heritage Act."
The Sandy Hill Secondary Plan Section 5.3.4 further reinforces the objective of
this Study.
This study is supported by the
Department as it is consistent with Official Plan policies relative to the
identification and designation of heritage resources in the City. It will enable better management of the
existing heritage districts in Sandy Hill in accordance with the Official Plan.
Funding for the study is in place.
CONSULTATION
The Ward Councillor, Georges Bédard supports this
study and has provided comments which have been incorporated into the Study
Terms of Reference as appropriate. The Heritage Sub-Committee of Action Sandy
Hill was consulted in the preparation of this Terms of Reference. The
University of Ottawa through their consultants Urban Strategies and ERA
Architects of Toronto were made aware of this proposed heritage study during
the course of their workshops and subsequent studies of the King Edward
precinct. Earlier support for the Study in principle had been provided by
LACAC, the Ward Councillor, Action Sandy Hill and Heritage Ottawa at the LACAC
meeting of December 9, 2004.
FINANCIAL IMPLICATIONS
Funds in the amount of $150,000 towards the Sandy
Hill Heritage Study are held in reserve in Capital Account 990234 517005
Heritage Studies. These funds were obtained from the Nicholas/Waller Settlement as approved by Council and the
subsequent allocation of funds in the amount of $150,000 to this study by Council
on April 26, 2005.
SUPPORTING DOCUMENTATION
Document 1 Sandy
Hill Heritage Study Terms of Reference
Document 2 Map of Study Area
DISPOSITION
The Supply Management Branch of the Department of
Corporate Services in cooperation with the Department of Planning and Growth
Management Department, Planning and Infrastructure Approvals Branch to prepare
a Request for Quotations and a Request for Proposals in accordance with the
Terms of Reference described in this Report.
Document 1
LIST OF PRIORITIES FOR DISPOSITION OF
NICHOLAS/WALLER TRIANGLE SETTLEMENT
SANDY
HILL HERITAGE STUDY- CONSULTANT TERMS OF REFERENCE
1.0
Introduction
Ottawa’s first heritage
conservation districts were designated in the Sandy Hill neighbourhood in 1982.
The driving force behind these designations was a strong community desire to
protect and maintain the historic character of the neighbourhood as represented
by its high concentration of older buildings and streetscapes.
By the early 1970’s community
awareness and interest in preserving the heritage character of Sandy Hill had
manifest itself in a neighbourhood planning exercise which expressed heritage
preservation as a fundamental goal. That goal remains a major element of the
Sandy Hill Secondary Plan within the City of Ottawa Official Plan.
The Sandy Hill neighbourhood
planning exercise in the 1970’s not only resulted in the Secondary Plan and
specialized heritage zoning to stabilize and enhance the heritage character of
the neighbourhood but also five heritage conservation districts. After nearly a
quarter century, the time has come to study these districts and the areas
around them with a view to:
·
researching and documenting the properties constructed in the area prior
to 1950 which have not been researched to this point ;
·
identifying buildings and groups
of buildings, beyond those already designated, which could be designated
as new heritage conservation districts
under Part V of the Ontario Heritage Act or as individual heritage properties
under Part IV of the Ontario Heritage Act; and
·
preparing a Heritage Conservation District Plan in order to manage the
existing five heritage conservation districts and any new districts that might
be identified as part of this study.
These tasks need to be carried out
within the context of the recently amended Ontario Heritage Act.
Requirements of the Ontario Heritage Act
The
Ontario Heritage Act was amended on April 28, 2005 and now specifies the scope
of a heritage study as follows:
40.
(1) The council of a municipality may undertake a study of any area of the
municipality for the purposes of designating one or more heritage conservation
districts.
A
study under subsection (1) shall,
(a) examine
the character and appearance of the area that is the subject of the study,
including buildings, structures and other property features of the area, to
determine if the area should be preserved as a heritage conservation district ;
(b) examine
and make recommendations as to the geographic boundaries of the area to be
designated;
(c) consider
and make recommendations as to the objectives of the designation and the
content of the heritage conservation district plan required under section 41.1;
(d) make
recommendations as to any changes that will be required to the municipality’s
official plan and to any municipal by-laws including any zoning by-laws.
2.0 The Study Process
2.1 General Study Outline and Approach
A succinct essay on the
historical development of the area as a whole will be prepared and summarized
in a Statement of Cultural Heritage Value.
In order to understand the
heritage character of the area, it is also necessary to identify and evaluate
the heritage attributes of the properties within it. The attached map of the
proposed heritage study area is intended to focus the scope of the study. The
boundaries of the study will extend from Osgoode Street on the south (both
sides) to Besserer on the north (both
sides) and from King Edward on the west to the Rideau River on the east. The
west side of Range Road, east side of King Edward Avenue, Henderson Street,
Nelson Street to Somerset Street are included as well as the west side of King
Edward between Laurier and Osgoode/Thomas More. The consultant could inventory
a limited number of isolated buildings of heritage interest outside these
boundaries should they wish to do so and with the approval of the Department of
Planning and Growth Management. This contingency should be identified as part
of the initial RFP.
2.2 Organization of the
Study
The Study will be organized as follows:
Phase I
The first phase will
investigate the heritage character of the area and the history of development
and construction in Sandy Hill. A detailed heritage analysis of all pre-1950
buildings will be carried out involving historical research, photographic
recording, and completion of City of Ottawa Heritage Survey and Evaluation
Forms. Construction dates can be estimated within a five-year period if
conventional sources do not reveal the exact date of construction. Composite
photographic streetscapes of the area will also be prepared.
Deliverables-Timing : Phase I will be completed within eight months of project
initiation.
Phase II
The second phase is the
evaluation of the data gathered in Phase I and summarized on the Heritage
Survey and Evaluation Forms. An evaluation of the structures and sites within
the study area will be undertaken by the consultant(s) and an evaluation
committee in accordance with the guidelines established in the "Handbook
for Evaluating Heritage Buildings and Areas."
The evaluation committee
will include representatives from the LACAC, Action Sandy Hill, and the City's
Heritage staff. The consultant will organize the material and conduct a minimum
of four evaluation team meetings. The results of this evaluation phase will be
recorded on the Heritage Survey and Evaluation Forms and will be mapped for
presentation purposes.
At the end of Phase II
the consultant(s) will present the initial findings at a public meeting. The
City will assume the costs for advertising the meeting and notifying the
appropriate public, however, the consultant will be responsible for the actual
organization of the meeting.
Deliverables – Timing: Phase II will be
completed within ten months of project initiation or two months after
completion of Phase I.
Phase III
The third phase is the preparation of a Heritage
Conservation District Plan in accordance with the requirements of S. 41.1 (5)
the Ontario Heritage Act outlined in section 3 of this document.
This plan will recommend boundaries for any new heritage
conservation districts, identify properties for individual heritage designation
and guidelines for the management of the area's heritage resources. It will
also discuss general planning recommendations, which may include zoning
recommendations. The general planning recommendations will ensure that the
heritage aspects of the study area are not isolated from the more global
planning issues which affect this area. These recommendations will be
considered as part of future Community Design Plans and other neighbourhood-specific
planning studies for Sandy Hill.
At the conclusion of Phase III, the consultant(s) will
present his/ her recommendations at a public meeting. The City will assume the
cost of advertising the meeting and notifying the public, however, the
consultant will be responsible for the actual organization of the meeting.
Deliverables – Timing: Phase III will
be completed within twelve months of project initiation or two months after the
completion of Phase II.
3.0
The Report
3.1
Organization of the Report
The report is to be organized into
two parts as outlined below.
Part A
Part A will include a
brief essay on the historical development of the area, the character(s) of the
area, and will examine significant building types, styles and construction methods.
It will be based upon the work undertaken in Phase I, and will be illustrated
by plans, drawings and photographs (both historical and contemporary views).
Part A will also include, as an Appendix, Heritage
Survey and Evaluation Forms completed for each pre-1950 building in the study
area. Each form will incorporate black-and-white photographs of all principal
facades of the building (some buildings were designed to be visible from all
sides), and the architectural context. The City will be provided and retain
electronic and hard copy originals of all forms and digital copies of the
photographs/streetscapes in JPEG format at a minimum of 5megs per photo or an
alternate and mutually-agreed upon electronic format.
Part A will also include a presentation plan of the study
area with the recommended boundaries of any district(s) and heritage buildings
identified. The classification of each building will be indicated, along with
the address, date of construction and other symbols as needed. The required data
is to be placed on one primary plan with overlays as needed. The map will be
provided in hard copy at a scale of 1:1250 (metric) as well as a GIS-ready
format (Shapefiles preferred).
Part
B Heritage Conservation District Plan
The
Plan will include the statutory requirements under S. 41.1(5) of the Ontario
Heritage Act as follows:
·
a statement of the objectives to be
achieved in designating the area as a heritage conservation district ;
·
a statement explaining the cultural heritage value or
interest of the heritage conservation district;
·
a description of the heritage attributes of the heritage
conservation district and of properties in the district ;
·
policy statements, guidelines and procedures for achieving
the stated objectives and managing change in the heritage conservation
districts; and
·
a description of the alterations or
classes of alterations that are minor in nature and that the owner of property
in the heritage conservation district may carry out or permit to carry out on
any part of the property, other than the interior of any structure or building
on the property, without obtaining a permit under section 42.2005, c.6.s.31
In addition, the following will be required :
1.
Recommended boundaries for any new
heritage conservation district(s) and the rationale for these boundaries;
2.
Identification of properties for
individual heritage designation
3.
Planning recommendations that will
ensure that the heritage planning concerns of Sandy Hill are not isolated from
the more global planning issues related to built form, land use,
intensification, etc., which affect this area;
4.
Guidelines for the treatment of
areas adjacent to heritage conservation district(s);
5. Guidelines for the management of heritage resources
within the study area which are not included in any heritage conservation
district(s);
6.
Recommendations regarding the
requirements for Cultural Heritage Impact Statements in Sandy Hill in
accordance with S.4.6.1,2,4 of the City of Ottawa Official Plan;
7.
Recommendations for amendments to
the City’s Property Standards By-law to specifically address the maintenance of
heritage buildings in Sandy Hill in accordance with the Ontario Heritage Act ;
8.
Recommendations regarding the
implementation of new incentives to encourage the retention and restoration of
heritage buildings ; and
9.
An executive summary which will
include all recommendations.
The final report
will be submitted in English and French to the satisfaction of the City. It
will be provided in a digital format compatible with the City’s website so that
all or part of the document can be placed on the City’s website.
Deliverables – Timing: The first draft of the final report will be provided within fourteen
months of the project initiation or two months after completion of Phase III
and the final document including all appendices, maps and products specified in
this Terms of Reference will be provided within sixteen months of project
initiation. This timeline does not include providing expert witness before the
Ontario Municipal Board should it be required since the timing for that is
beyond the City and consultant’s control.
Information
to be provided by the City to the Consultants:
Existing
research files for individually designated heritage buildings
Research files for the Wilbrod/Laurier Heritage Conservation District
Draft district plan for the Wilbrod/Laurier Heritage Conservation
District
A copy of the City of Ottawa Official Plan & Sandy Hill Secondary
Plan
A copy of the Handbook for the Evaluation of Heritage Buildings and
Areas
An electronic version of the Heritage Inventory & Evaluation Form
Samples of completed Heritage Inventory & Evaluation Forms from the
Lowertown West and Central Area West Heritage Conservation District Studies
List of existing studies and research material related to Sandy Hill’s
heritage
Uptown Rideau Community Design Plan January 12, 2005
King Edward Precinct Heritage & Development Clusters (work in
progress) ERA Architects and Urban Strategies for University of Ottawa
Additional requirements of the consultant
One or more members of the consultant team must be based in Ottawa.
One or more members of the consultant team must be sufficiently
bilingual to be able to present their findings in English and French at the two
public meetings, four evaluation meetings, meeting of LACAC and Planning and
Environment Committee.
A major component of this study will involve historical research. The
consultant team must demonstrate proficiency in this area and specific research
related to architectural history. A minimum of 50% of the consultant budget
must be dedicated to building research and documentation.
The consultant team must make provision as part of their budget a
contingency for attendance at five days of Ontario Municipal Board hearings and
legal support at those hearings.
Document 2
MAP OF STUDY AREA
