HomeMy WebLinkAboutDSD-19-183 - Heritage Permit Application HPA-2019-V-010 (30-40 Margaret Avenue)REPORT TO: Heritage Kitchener
DATE OF MEETING: August 6, 2019
SUBMITTED BY: Brandon Sloan, Manager of Long Range & Policy Planning,
519-741-2200 ext. 7684
PREPARED BY: Leon Bensason,Coordinator, Cultural Heritage Planning
(519) 741-2200 x7306
WARD (S) INVOLVED: Ward10
DATE OF REPORT:July 18, 2019
REPORT NO.: DSD-19-183
SUBJECT: Heritage Permit Application HPA-2019-V-010
30-40 Margaret Avenue
Construction of two 6-storey multiple residential buildings
__________________________________________________________________________________________
RECOMMENDATION:
THAT pursuant to Section 42 of the Ontario Heritage Act, Heritage Permit Application HPA-2019-
V-010be approved to permit the construction of two joined 6-storey multiple residential buildings
on the property municipally addressed as 30-40 Margaret Avenue, in accordance with the plans
and supplementary information submitted with the application and subject to the following
condition:
1.That the final building permit drawings be reviewed and heritage clearance provided by
Heritage Planning staff prior to the issuance of a building permit.
Location Map: 30-40 Margaret Avenue
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BACKGROUND:
The Development Services Department is in receipt of Heritage Permit Application HPA-2019-V-010
which is seeking permission to construct two joined 6-storey multiple residential buildings on a vacant
parcel of landmunicipally addressed as 30-40 Margaret Avenue. The subject property is designated
under Part V of the Ontario Heritage Act by virtue of its location within the Civic Centre Neighbourhood
Heritage Conservation District.
Context
The subject property is located on the north side of Margaret Avenue between Queen Street North and
Victoria Street North and is approximately 3.01 acres in size. The lands were previously occupied by
several large estate residences located on separate lots, andwhich were demolished in the late 1980s
in anticipation of being redeveloped. Immediately to the east of the subject property is the c.1935 Church
of the Good Shepherd, located at 12 Margaret Avenue / 116 Queen Street North. In addition to being
designated under Part V of the Ontario Heritage Act, the church property is also individually designated
under Part IV of the Act, with the existing wrought iron fence identified as a heritage attribute in the
designating by-law. The wrought iron fence was constructed in 1888 and originally enclosed the mansion
(demolished) owned by industrialist William Roos.
Immediately to the west of the subject property is a residence built in the Queen Anne style and identified
as a Group’ A’ (or highly architecturally significant) building located at 54 Margaret Avenue. Tothe north
are the rear of the properties fronting Ellen Street West and occupied by single detached dwellings.
Properties to the south on the opposite side of Margaret Avenue are occupied with single detached
dwellings as well as 4and 18 storey apartmentbuildings.
Google aerial image of vacant property at 30-40 Margaret Avenue
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Recent Planning History of Subject Property
In 2008, Kitchener City Council approved By-law 2008-039, designating the Civic Centre Neighbourhood
Heritage Conservation District(CCNHCD).The CCNHCD Plan contains policies and guidelines aimed in
part at guiding proposed changes to assist in the protection and conservation of the unique heritage
attributes and character of the Civic Centre neighbourhood. This includes establishing specific design
guidelines for several sites within the heritage district boundary that have redevelopment expectations.
One of those sites is the vacant parcel of land at 30-40 Margaret Avenue.
Following Council’s approval of the Civic Centre Neighbourhood Heritage Conservation District, the
designating by-law for the heritage district was appealed by the previous owner of 30-40 Margaret
Avenue, who planned to redevelop the property. In an effort to resolve the appealand avoid a full hearing,
the Ontario Municipal Board requested that City staff, the appellant and several neighbouring property
owners meet to work through design related interests and concerns regarding the potential
redevelopment of 30-40 Margaret Avenue.This resulted in the design of a preliminary redevelopment
concept for two joined six storey buildings that was generally supported by all parties. In turn, the previous
ownerof 30-40 Margaret Avenue submitted site-specificOfficial Plan and Zoning By-law amendment
applications to facilitate redevelopment of the property in a manner consistent with the design that
received general support. These site specific amendments, which continue to apply to the property,
permit development having a Floor Space Ratio of 2.5, a building height of 21.1metres, and specific
direction related to yard setbacks and maximum building frontage.Following Council’s approval of the
Official Plan and Zoning By-law amendments, the previous owner of 30-40 Margaret Avenue withdrew
theirappeal of the heritage district designating by-law in September 2010.
While a development application had been made for 30-40 Margaret Avenue shortly after the appeal to
the designating bylaw was withdrawn, the proposed development did not progress to final approval. Since
that time, ownership of the property has changed, and the current property owner has made a new site
plan application for redevelopment on the property.
CCNHCD Plan Policies & Guidelines
TheCCNHCD Plan contains site specific policies and guidelines aimed at guiding proposed change and
development on 30-40 Margaret Avenue.The following policies of the HCD Plan apply to the subject
property to ensure that new development maintains the heritage character of the District:
Policies:
a)New development shall maintain the overall residential character of the neighbourhood.
b)Underground parkingis encouraged for all forms of development and is required for apartments
with the exception of surface visitor parking.
c) Redevelopment should be of a height, siting and design that will prevent it from encroaching on
lower density dwellings on Ellen and Ahrens Streets (note that the author of the HCD Plan likely
meant Margaret Avenue rather than Ahrens Street).
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d)Development proposalsshall establish a strong pedestrian oriented street edge that is
consistent with the residential character of the District, through the use of appropriate setbacks,
height, architectural features and building articulation.
e)Any buildings proposed over 5 storeys in height may be required to undertake shadow studies
to demonstrate that they will not unreasonably impact access to sunlight in rear yard areas on
Ellen Street.
f)The retention and incorporation of existing trees is strongly encouraged as part of any
redevelopment proposal.
g)Traffic studies may be required to demonstrate that new development will not have a negative
impact on the existing character of the area with respect to any potential road width / turning
lane requirements or access locations.
h)Design guidelines provided in Section 6.9.1 of the Plan will be used to review and evaluate
proposals for additions or new buildings to ensure new development is compatible with the
adjacent context.
The CCNHCD Plan states that the following guidelinesshould be considered during the building and site
design of this area:
New development on the vacant lot on Margaret Avenue should establish a strong relationship
to the street similar to that which exists on the south side of the street, by having a maximum
front yard setback of 10 metres.
A minimum rear yard setback of 10 to 15 metres is encouraged to minimize the impact of new
development on existing residents on Ellen Street West, given the topography slopes
downwards from Margaret Avenue to Ellen Street. This rear yard setback is also more consistent
with that of existing development on Ellen Street.
Building stepbacks are encouraged for any development greater than 3-4 storeys in height to
minimize the impact of new development on the pedestrian environment of the street. Stepbacks
should be a minimum of 2 metres to provide for useable outdoor terraces on the upper levels.
Street level architecture of any new development on Margaret Avenue should incorporate a high
degree of building articulation and architectural detail to provide interest and compatibility with
existing buildings across the street. Details could include cornices, pilasters, varied roof lines,
pitched roofs, gables and dormers, decorative door and window details, turrets, porches, bays
and other similar features.
Create transitions in building width and massing by dividing the building visually into smaller
units or sections that are more representative of the predominantlysingle family nature of the
neighbourhood.
The use of brick and/or stone is strongly encouraged for the front façade of any new
development, to establish consistency with other heritage buildings in proximity to this parcel of
land.
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Parking for new development will not be permitted in the front yard. Underground parking is
strongly encouraged, or appropriately landscaped and screened surface parking at the rear or
side of the development.
Retention and incorporation of healthy trees currently located on the vacant land parcel is
strongly encouraged to provide the new development with an “instant” amenity and to help it
blend into the heritage landscape that exists in the Civic centre Neighbourhood. Design new
building around the existing trees to the extent possible. Where trees must be removed, they
should be replaced with new ones at appropriate locations in the landscape.
In addition to these guidelines, the HCD Plan contains an illustration of a conceptualdesignfor a 5 storey
development on 30-40 Margaret Avenue.
REPORT:
Development Proposal
The development proposed to be constructed at 30-40 Margaret Avenue features two 6storey multiple
residential buildings joined by a central 3storey glass atrium. The complex would consist of234
residential units. Parking would be primarily underground, with 16 surface parking spaceslocated at the
rear of the building.
Aerial image of 30-40 Margaret Avenue with proposed Site Plan
Materials to be used in the construction of the 6storey buildings include primarily a red-brown brick. Most
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of the first and second floor levels will featureArriscraft stoneto contrast with the brick, and the 6storey
willhave a standing seam charcoal metal mansard roof. The two 6 storey buildings will be articulated
through several projections in the façade, recessed balconies, and terraces on the lower floors
accentuated by projecting stone columns and surrounds.Balcony railings will be black wrought iron to
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sympathize with the adjacent designated fence of the Church of the Good Shepherd; this will alsobe tied
into a landscape wall along the frontage of the property, described further below.
Rendering of proposed development at 30-40 Margaret Avenue
Detail showing proposed materials and colours on building facade
The development has been designed to comply with building height and yard distance regulations
established in the site-specificzoning. The proposed building height is 20.4 metres (whereas the zoning
permits 21.1m). The front yard setback is proposed to be 6.28 metres, whichis within the range from 4.5
metres to 8 metres established by the site-specificzoning. There is a rear yard setback of 17.29 metres
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(whereas as the zoning requires a minimum of 7.5 metres),and side yard setbacks will be 13.27 metres
(greater than the minimum 6.0metres required in the zoning). Finally, the development will have a floor
space ratio (FSR) of 2.16, whereas a FSR of 2.5 is permitted.
Landscape / StreetscapePlan
The proposed development will also introduce extensive landscapingand hardscapefeatures that will
transition from public, semi-private, and private spacesalong the Margaret Avenue frontage.
Of the reported existing 92 trees onthe site,25 trees are proposed to remainand 67 will be removed(28
trees have or will be removed as they are dead or are in poor condition, and 39 trees will be removed for
construction). Existing matureandhealthy trees are to be incorporated into the overall site design, and
new trees are proposed to be placed in other parts of the site to mitigate the tree removals.
It is proposed that thestreetscape along Margaret Avenuewill be accentuated with a number of new
street trees and a series of public seating areas/benchesthat extend seamlessly into the semi private
space on the property, but will be accessible from the public sidewalk. In addition to the series of steps
that lead to a main central entrance, four additional walkways will be introduced along theMargaret
Avenue frontage, each providing access into the propertyand semi private and private spaces.
Public
Semi-Private
Private
Graphic from Updated HIA showing streetscape relationship
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-
Walkway
SemiPrivate
Benches
ublic
Sidewalk
P
Proposed streetscape plan showing 5 points of entry into the development; enhanced plantings and
seating areas in semi private space; and an internal walkway with additional landscaping treatments
A4 foot fence is proposed along the frontage of the property. The fence would be composed of a 2 foot
base using proportionately placed light coloured stones, to synchronize with the stone used on the first
and second storeys of the building; and a2 foot wrought iron top, whichwould connect visually with the
black balcony railings across the façade of the overall building. The end of fence lines feature a4.5 foot
column with a precast coping and rectangular sconce fixture.
Proposed wall and fence detail
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Community and Heritage Kitchener Consultation/ Comments
While heritage permit applications are not typically subject to public circulation or comment; given the
community interest regarding the subject property, aneighbourhood information meeting for the proposed
development and site plan application was held in May of 2019. In addition, the Heritage Impact
Assessment (HIA) submitted in support of the site plan application, was presented and discussed at the
Heritage Kitchener meeting of June 4, 2019.
The following comments onthe design of the development proposal presented in May and June, were
made by members of the public and community, including neighbouring property owners.
Praise for the extent to which the developer reached out to neighbours and the community.
Concern with the removal of trees.
Concern that the proposed development is too different from the balance of the existing low-rise
residential development on the street.
Concern that the proposed developmentlacks compliance with the Civic Centre Neighbourhood
HCD Plan policies and site-specificguidelines, particularly in regard to the lack of building
stepbacks to minimize impact on the pedestrian environmentand neighbouring low-rise buildings.
Praise for the overall quality of the design and selection of building materials.
Concern that the neighbouring Group ‘A’ rated property at 54 Margaret Avenue may be negatively
impacted by the proposed development due to shadows, isolation and that views to heritage
attributes will be obstructed.
Praise for the extent to which the developer has addressed concerns expressed by neighbouring
property owners on Ellen Street West, including establishing a significant rear yard setback,
reasonable building height, landscape screening, and high quality building design.
Comments from members of the Heritage Kitchener committee echoed some of the comments made by
the general public, particularly in regard to concern for potential impacts on 54 Margaret Avenue, but also
in regard to the overall high quality of design and extent to which the developer has reached out to the
community. Additional committee comments included concern that the ground floor design of the building
andelevated front yard setting does not establish an appropriate relationship to the street, and lacks the
“front door” and open yard presence found elsewhere along the streetscape and that is characteristic of
the heritage district.
Heritage Impact Assessment Findings and Conclusions
An updated Heritage Impact Assessment (HIA) dated June 26, 2019 and prepared by MHBC Planning
Limited has been submitted in support of the Heritage Permit application proposing new development on
30-40 Margaret Avenue. The HIA provides details in regard tothe updated design of the proposal;
assesses whether the proposal impacts heritage resources and attributes; and recommends how impacts
can be mitigated. An excerpt from the HIA is attached with the Heritage Permit application as Appendix
‘A’ to this staff report. The full HIA will be made available on the City’s website.
The HIAdetermines that the proposed development conforms to the policies and guidelines of the
CCNHCD Plan, and has limited adverse impacts on the subject property and to adjacent buildings. The
HIA establishes that the limited adverse impacts are in the form of the removal of 67 trees, and in the
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form of land disturbance impactsto the residential building at 54 Margaret Avenue and to a coach house
building at 12 Margaret Avenue, related to potential vibrations emitted during construction.
Recommended mitigative measures for the removal of trees include tree replacement and replanting in
the landscaped areas between the new buildings and edges of the property that abut adjacent properties.
Trees to be planted along the adjacent property lines should be of a type that would provide maximum
screening potential. The treed frontage of the property should be reinstated with a tree boulevard similar
to the treed boulevard along the south side of Margaret Avenue, Queen Street North and Ellen Street
Westwithin the heritage district.
In regard to the potential for impacts related to vibrations emitted during construction, the HIA
recommends that the following measures be undertaken to ensure vibrations are minimizedand impacted
properties are monitored:a) inspection of 54 and 12 Margaret Avenue (coach house) prior and post
construction;b)requirement to install construction fencing; c) completion of a vibration monitoring plan;
and, d)certification by aqualified Engineer that the footings and foundation plan for the proposed
development hasbeen designed so as not to interfere with or cause harm to 12 Margaret Avenue, given
the proximity of the coach house to excavation activities.
Heritage Planning Staff Comments
Heritage Planning staff are in agreement with the findings and conclusions of the updated Heritage
Impact Assessment(HIA) dated June 26, 2019 and make the following comments in regard to the merits
of Heritage Permit Application HPA-2019-V-010.
The applicant has considered some of the comments made by neighbourhood residents and members
of Heritage Kitchener, and has made some changes to the development proposal. These are described
further below, and includesshiftingthe proposed new building an additional 3m away from 54 Margaret
Avenue, compared withthe designthat was previously presented to the public.
It isimportant to note that the development as proposed, complies with the existing site specific land use
and zoning regulations relative to floor space ratio, building height and all yard setback requirements
(front, rear and side yards). These regulations were approved by Council through a public planning
process after the CCNHCD Plan policies and guidelines were prepared, and directly relate to the eventual
withdrawal of the appeal to the HCD and approval of the designating bylaw by the Ontario Municipal
Board.
Compliance with the CCNHCD Plan policies and site specific guidelines
Heritage staff are of the opinion that the proposed development is in compliance with the CCNHCD Plan
policies and site specific guidelines, which are outlined earlier in this report. Specifically, staff note the
following:
The proposed development respects the existing neighbourhood character through appropriate
building massing (building height, scale and locationin compliance with existing site specific
zoning); use of appropriate building materials such as brick and stone; and an architectural
design that is contemporary yet features historic design elements that can be found elsewhere
within the heritage district (e.g. mansard roof).
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Parking is primarily underground with only a limited number of visitor surface parking spaces
located to the rear.
The building height, in combination with the substantial rear and side yard distances, will result
in a form of development that will not encroach on neighbouring low rise buildings. Public
comments received from a number of Ellen Street residents suggest they are satisfied with the
design of the development as proposed. Following receipt ofthe public and heritage committee
comments, the applicant has extended the side yard distance from 54 Margaret Avenue an
additional 3m. to 13.27 metres. This results in establishing an approximate 15m distance
between the two buildings(which exceeds a 45degree angular plane), and also provides for an
increased landscaped buffer at the property line.
Graphic from updated HIA illustrating 49 degree angular plane from54 Margaret Avenue
resultingfrom extending side yarddistance to 13.27m.
The proposed development has been designed with consideration given to the existing built form
and context on Margaret Avenue and Ellen Street. Itestablishes a strong pedestrian oriented
street edge that features a high degree of architectural detailing at street level with changes in
building materials/colours, building projections and recessions, terraces, and varying window
sizes. In addition, the development features substantial front yard landscaping with new street
trees and a series of public seating areas/benchesthat extend towarda decorative 4 foot fence
withwrought iron top.
The impact of shadows to a cultural heritage resource is specific to how it may adversely impact
a heritage attribute and/ or renders a building or structure unviable. A shadow study has been
undertaken and shows that there will beminimal shadowimpacts to the rear yards of the
properties on Ellen Street West. The development will cast a shadow on 54 Margaret Avenue
from approximately 10:00am and 12:00pm throughout the year. Theshadowing is for a short
duration and will not impact the heritage attributes in so much that they are negated, anddoes
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notrender the building unable to be usedor enjoyed viably as a residential dwelling. Such
shadowing is also considered acceptable from a site plan / urban design perspective.
The development will feature an extensive landscaping plan that will retain healthy trees not
impacted by construction, and introduce a number of new trees including street trees and public
seating areas along the frontageand streetscape.
While the proposed 6 storey buildings may not feature traditional building stepbacksabove the
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floor as illustrated and encouragedin the HCD Plan, the development adequately minimizes
impacts on the pedestrian environment through its design and siting. The combination of building
height and setback from Margaret Avenue achieves (and exceeds) a 45 degree angular plane
from the opposite side of Margaret Avenue. Such measurement is an accepted urban design
standard relative to achieving a comfortable sense of enclosure for pedestrians, with positive
access to sunlight and skyviews.
Graphic from updated HIA illustrating angular plane from MargaretAvenue
In regard to concerns expressed relating to potential impacts on 54 Margaret Avenue; as has
been noted, shadow impacts are limited during the day and are considered to be within acceptable
range. The side yard distance with 54 Margaret Avenue has been extended an additional 3m,
achieving an approximate 15m distance between the existing building and the proposed 6 storey
buildings. This distance should not result in either isolating or enclosing the existing residence.
The extended side yard provides opportunity to establish a 5.5m landscape buffer. This buffer will
retain some existing mature trees and introduce new trees and landscaping along the property
line for increased privacy. Theproposed development should not impact significant views to 54
Margaret Avenue. Existing views to the building from the east are currently partially obstructed by
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mature vegetationat various times of the year. The development will not obstruct direct views to
the front façade of the building, or views to heritage attributes (such as the turret) approaching
from the west.
In response to comments made previously by some members of Heritage Kitchener regarding
the development lacking an appropriate open yard and multiple “front door” relationship to the
street; it should be noted that the development provides 5 points of entry into the development
from the public sidewalk on Margaret Avenue. Further, the developer is now proposing that the
private patios of the ground floor units facing Margaret Avenue will feature a means of access
(e.g. operable gates) to the semi-private and public landscape / streetscape elements, thus
encouraging and enabling a greater flow of pedestrian movement between the public and private
realm. The transparency of the wrought iron fence along the frontage of the property provides
opportunity for an interchange between public and private spaces,engaging the development into
the pedestrian experience of the streetscape.
In addition to requiring issuance of a Heritage Permit as a condition of Site Planapproval, the developer
will also be required, as part of the planning approval process, to satisfy the mitigation measures identified
in the updated HIA,referenced earlier in this report.
In accordance with the Heritage Permit Application form, the approval of an application under the Ontario
Heritage Act shall not be a waiver of any of the provisions of any by-law of the City of Kitchener or
legislation, including but not limited to, the requirements of the Ontario Building Code and Zoning By-law.
In this regard, staff confirm that a Building Permit is required to demolish the accessory structure and
construct the addition.
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
The recommendation of this report supports the achievement of the City’s strategic vision through the
delivery of core service.
FINANCIAL IMPLICATIONS:
N/A
COMMUNITY ENGAGEMENT:
INFORM – This report has been posted to the City’s website with the agenda in advance of the Heritage
Kitchener committee meeting.
CONSULT – Heritage Kitchener has been consulted regarding the subject Heritage Permit application.
As referenced earlier in this report, theproposed development was discussed at a neighbourhood
information meeting held in May 2019 and at an earlier Heritage Kitchener meeting held in June 2019.
Input and comments received from those meetings have been considered in the preparation of this report.
ACKNOWLEDGED BY: Alain Pinard, Director of Planning
APPENDIX A:Heritage Permit Application HPA-2019-V-010 and excerpt from updated HIA
dated June 26, 2019 prepared by MHBC Planning Limited.
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1 - 19
4/1 Jouspevdujpo!up!Efwfmpqnfou!Tjuf!boe!
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1 - 20
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1 - 21
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1 - 22
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1 - 23
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1 - 24
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1 - 25
5/1 Eftdsjqujpo!pg!Qspqptfe!Efwfmpqnfou!
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1 - 26
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6/1!Djwjd!Dfousf!Ofjhicpvsippe!Ifsjubhf!
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1 - 52
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1 - 53
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1 - 54
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312:*
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1 - 55
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1 - 56
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1 - 57
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- 1.20 m- 4.40 m\[337.00\]- 7.60 m\[333.80\]
- 1.20 m- 4.40 m- 7.60 m
+ 9.60 m+ 6.60 m+ 3.60 m± 0.00 m\[341.400\]
+ 9.60 m+ 6.60 m+ 3.60 m± 0.00 m\[341.400\]\[337.000\]\[333.800\]+ 20.40 m+ 15.90 m+ 12.60 m
+ 20.40 m+ 15.90 m+ 12.60 m
FIFTH FLOOR
SIXTH FLOORTHIRD FLOOR
SIXTH FLOORFIFTH FLOOR
THIRD FLOOR
FOURTH FLOOR
FOURTH FLOORSECOND FLOORGROUND FLOOR
SECOND FLOORPARKING LEVEL 1
GROUND FLOORH.P. OF SLAB (P1)PARKING LEVEL 2
PARKING LEVEL 1
H.P. OF SLAB (P1)PARKING LEVEL 2
MECH. PENTHOUSE
MECH. PENTHOUSE
PROPERTY LINE
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1 - 63
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+ 9.60 m+ 6.60 m+ 3.60 m± 0.00 m\[341.400\]
+ 20.40 m+ 15.90 m+ 12.60 m
FIFTH FLOOR
SIXTH FLOOR
THIRD FLOOR
FOURTH FLOOR
SECOND FLOOR
GROUND FLOOR
PARKING LEVEL 1
H.P. OF SLAB (P1)
PARKING LEVEL 2
MECH. PENTHOUSE
A V E N U E
M A R G A R E T
EDGE OF CURB
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PROMENADE
LANDSCAPED
PROPERTY LINE
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LAP POOL /
OUTDOOR AMMENITY
LOADING RAMP
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1 - 64
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N.T.S
January 29, 2018
March 18, 2019 DATE:SCALE:
Sources: Trimble Sketch-Up 2018
LEGEND
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Shadow Study
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1 - 71
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January 29, 2018
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DATE:SCALE:
Sources: Trimble Sketch-Up 2018
LEGEND March 18, 2019
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Summer Shadows - June 21Shadow Outline
Shadow Study
Figure
1 - 72
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N.T.S
January 29, 2018
March 18, 2019 DATE:SCALE:
Sources: Trimble Sketch-Up 2018
LEGEND
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Autumn Shadows - September21Shadow OutlineShadow Outline
Shadow Study
Figure
1 - 73
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N.T.S
January 29, 2018
March 18, 2019 K:\\8784bi\\Shadow Study
SCALE:
Sources: Trimble Sketch-Up 2018 DATE:
LEGEND
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Winter Shadows - December 21Shadow Outline
Shadow Study
Figure
1 - 74
ACCESS
PARKING
UNDERGROUND
LANDSCAPED AREA
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1 - 75
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RAMP
MAIN
ENTRY
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1 - 76
STREETSCAPE RELATIONSHIP
1 - 77
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1 - 78