HomeMy WebLinkAboutCSD-12-071 - Solar Energy and Heritage Conservationl
Staff Report
K~`rc;H~~T~.R Community Services Department www.kitchenerca
REPORT T0: Heritage Kitchener
DATE OF MEETING: May 1, 2012
SUBMITTED BY: Brandon Sloan, Manager of Long Range & Policy Planning
PREPARED BY: Michelle Drake, Heritage Planner (519-741-2839)
WARD(S) INVOLVED: All
DATE OF REPORT: April 12, 2012
REPORT NO.: CSD-12-071
SUBJECT: Guidelines for the Installation of Solar Technology on
Cultural Heritage Resources
RECOMMENDATION:
That the Guidelines for the Installation of Solar Technology on Cultural Heritage
Resources, as outlined in Appendix A of Community Services Department report CSD-12-
071, be approved.
BACKGROUND:
Solar technology is rapidly changing and evolving. Owners of cultural heritage resources are
showing interest in using solar technology to offset rising energy prices while contributing to
environmental sustainability. Heritage Planning staff support the use of solar technology on
cultural heritage resources but believe that guidance is necessary to conserve the heritage
values and attributes. Existing guidelines and policies provide limited advice on how to avoid or
mitigate negative impacts on heritage values and attributes resulting from the installation of
solar technology. Establishing clear guidelines for the installation of solar technology on cultural
heritage resources will ensure that the integrity of the resource and its heritage attributes are
maintained.
REPORT:
Context
The Ontario Green Energy Act, 2009 aims to expand renewable energy production, encourage
energy conservation and create green jobs. In developing the Green Energy Act, the
Association of Municipalities of Ontario (AMO) Energy Task Force worked with the Province to
ensure that the Ontario Heritage Act remains in effect in order to conserve cultural heritage
resources. These efforts resulted in the adoption of O.Reg. 15/10, which requires renewable
energy projects (Part II, 5.(4) (b)) to comply with the requirements of the Ontario Heritage Act.
As a result, Heritage Permit Applications may be required for renewable energy projects,
including the installation of solar technology on cultural heritage resources.
In reviewing the merits of a Heritage Permit Application, Heritage Planning staff review existing
municipal, regional, provincial and federal documents (e.g. policies, guidelines, standards and
regulations) to ensure that the integrity of cultural heritage resources and their heritage
attributes are maintained. In reviewing these documents, it would appear that only two
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documents provide guidance on the installation of solar technology on cultural heritage
resources.
First, the City of Kitchener's St. Mary's Heritage Conservation District Plan policies indicate that:
solar panels are best located on the rear elevation of buildings; asphalt shingles are the
preferred roofing material; original roof configurations should be respected; and, that new roof
features such as solar panels, should be located away from public view of the front of the
building or the public right-of-way. These policies only apply to properties designated under Part
V of the Ontario Heritage Act and located within the St. Mary's Heritage Conservation District.
Second, the Parks Canada Standards and Guidelines for the Conservation of Historic Places in
Canada indicate that: solar panels on cultural heritage resources should be installed
inconspicuously to avoid or minimize impacts to heritage attributes. Unfortunately, these
documents do not apply to all cultural heritage resources and only provide limited guidance on
options to avoid or mitigate negative impacts resulting from the installation of solar technology
on cultural heritage resources.
Guidelines
Proposals to install solar technology on Part IV and Part V (Group A, B, and C) cultural heritage
resources require the submission and approval of a Heritage Permit Application. Heritage
Planning staff have developed guidelines in order to ensure a consistent, fair and transparent
process for the consideration of such Heritage Permit Applications. The initial draft of the
guidelines utilized research from Australian, UK and US examples (as no Canadian examples
were found). The draft was updated based on feedback from the industry received though the
6th SOLAR Industry Networking Event and feedback from the Heritage Kitchener Committee.
In general, proposals to install solar technology where the technology does not impact heritage
attributes and/or will not be visible from the public realm will be supported. On the other hand,
proposals to install solar technology that will impact heritage attributes andlor be visible from the
public realm will not be supported unless the proposal complies with the guidelines. The full
guidelines are attached as Appendix `A'.
In summary, the guidelines indicate that:
^ Proposals to install solar technology on Part IV and Part V (Group A, B, and C) cultural
heritage resources require a Heritage Permit Application;
^ Proposals to install solar technology on cultural heritage resources should conform to
the Ontario Ministry of Culture's Eight Guiding Principles for the Conservation of Built
Heritage Properties and the Parks Canada Standards and Guidelines for the
Conservation of Historic Places in Canada;
^ Proposals to install solar technology on the primary fagade of a cultural heritage
resource are the least desirable options because such installations will likely have the
greatest adverse effect on heritage values and attributes;
^ Proposals to install solar technology on cultural heritage resources must consider:
o Aesthetics & Visibility;
o Design & Installation;
o Location; and,
o Reversibility & Physical Impact; and,
^ Proposals to install solar panels on Group D cultural heritage resources within Heritage
Conservation Districts do not require a Heritage Permit Application.
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Heritage Planning staff believe that the guidelines will allow the City to lead by example in
Ontario and Canada with respect to balancing energy and heritage conservation objectives.
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
Community Priority -Quality of Life
The City has its own unique culture and heritage. The City has places, spaces and stories that
enrich, enlighten, and guide growth and development. These cultural heritage resources are
integral to the identity of the City, but they also play a significant role in economic development
by helping to enhance quality of life, strengthen distinctiveness, stimulate revitalization and
attract tourism. Under the Ontario Heritage Act, the City can designate properties of cultural
heritage value or interest. Designation publicly acknowledges a property's heritage value and
ensures its conservation for the benefit and enjoyment of present and future generations. Its
conservation is regulated by a designating by-law, which provides a statement of significance
and lists specific heritage attributes. Proposed changes may impact the statement of
significance and heritage attributes. The Guidelines for the Installation of Solar Technology on
Cultural Heritage Resources will ensure that the integrity of cultural heritage resources and their
heritage attributes is maintained through avoiding or mitigating negative impacts associated with
the installation of solar technology on cultural heritage resources. As a result, Heritage Permit
Applications support the Quality of Life Community Priority of the City of Kitchener Strategic
Plan while still allowing for some benefit to the Environment, which is another Community
Priority.
FINANCIAL IMPLICATIONS:
NIA
COMMUNITY ENGAGEMENT:
Heritage Planning staff attended the 6t" SOLAR Industry Networking Event to introduce the
guidelines to industry representatives. Following the event, Heritage Planning staff met one on
one with two different solar technology companies. Draft guidelines were presented to Heritage
Kitchener in the Fall of 2011. Comments from the industry and Heritage Kitchener have been
considered in the preparation of these guidelines. Members of the community will be informed
via circulation of the report and guidelines to Heritage Kitchener and via formal consideration by
Council.
REVIEWED BY:
Leon Bensason, Coordinator, Cultural Heritage Planning
ACKNOWLEDGED BY: Alain Pinard, Director of Planning
Community Services Department
Appendix A: Guidelines for the Installation of Solar Technology on Cultural Heritage Resources
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Checklist Information required* for the installation of solar technology on cultural
heritage resources:
^ Pre-Submission Consultation Meeting with Heritage Planning staff*
^ A complete Heritage Permit Applicationfnrm
^ A Site Plan drawing showing:
^ existing and proposed buildings
^ property boundaries
^ A Roof Plan drawing showing:
^ location of proposed solar technology
^ size and dimensions of the proposed solar technology
^ details of existing and proposed roofing materials and colours
^ details and location of any supporting equipment
^ height of installation above roof surface (e.g. distance between roof and panel
^ distance of installation from ridge, side and bottom of the roofline
^ Installation instructions and specifications for the proposed solar technology
^ A 3D Model (e.g. SketchUp Model) depicting existing conditions and proposed
solar technology
^ A written description outlining how the proposal responds to the Guidelines for
the Installation of Solar Technology on Cultural Heritage Resources
^ A written description outlining how the proposal avoids or mitigates impacts
with reference to the Designating By-law and/or Heritage Conservation District
Plan
^ Photographs of existing conditions
*Note that through the pre-submission consultation meeting process Heritage Planning staff will
confirm, and may scope, the information requirements to process a request to install solar
panels on a specific property.
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Guidelines for the Installation of Solar Panels on Cultural Heritage Resources
Introduction
The purpose of these guidelines is to develop a consistent, fair and transparent process for the
consideration of proposals to install solar technology on cultural heritage resources. The City
recognizes that both heritage conservation and energy conservation are important, and thus
acknowledge that care must be taken that one is not achieved at the expense of the other.
Proposals to install solar technology on cultural heritage resources shall be considered on a
case by case basis recognizing that the best option will depend on the characteristics of the
subject property as well as its ranking or degree of significance. Tolerance for the visibility of
solar technology on a cultural heritage resource decreases with the significance of the cultural
heritage resource (e.g. Part IV or Part V -Group 'A').
Owners are strongly encouraged to implement alternative energy conservation measures prior
to installing solar technology on a cultural heritage resource. Alternative energy conservation
measures are the most cost-effective way to save energy and realize utility bill savings. The
return on investment in solar technology can often be enhanced when the building hosting the
system is already energy efficient. Examples of alternative energy conservation measures
include: programmable thermostats; energy efficient light bulbs; ceiling fans (rather than air
conditioning); regulating heating, cooling and moisture levels; adding insulation; maintaining
windows and storm windows; and, caulking and weatherstripping.
Proposals to install solar technology on cultural heritage resources should conform to the
Ontario Ministry of Culture's Eight Guiding Principles in the Conservation of Built Heritage
Properties and the Parks Canada Standards and Guidelines for the Conservation of Historic
Places in Canada.
Applicable principles include:
RESPECT FOR HISTORIC MATERIAL: Repair/conserve -rather than replace building
materials and finishes, except where absolutely necessary. Minimal intervention
maintains the heritage content of the built resource.
REVERSIBILITY: Alterations should be able to be returned to original conditions. This
conserves earlier building design and technique.
Applicable standards include:
^ Conserve the heritage value of a historic place. Do not remove, replace, or substantially
alter its intact or repairable character-defining elements. Do not move a part of a historic
place if its current location is acharacter-defining element.
^ Conserve heritage value by adopting an approach calling for minimal intervention.
^ Conserve the heritage value and character-defining elements when creating new
additions to a historic place or any related new construction. Make the new work
physically and visually compatible with, subordinate to and distinguishable from the
historic place.
^ Create any new additions or related new construction so that the essential form and
integrity of a historic place will not be impaired if the new work is removed in the future.
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In most cases, the installation of solar technology on the primary facade of a cultural heritage
resource and/or on elevations visible from the public realm (such as parks, sidewalks, streets)
are the least desirable options because such installations will likely have the greatest adverse
effect on heritage values and attributes of the property and/or Heritage Conservation District.
Recognizing the potential adverse effects on heritage values and attributes, proposals to install
solartechnology on cultural heritage resources must considerthe following guidelines:
Guidelines for the Installation of Solar Technology on Cultural Heritage Resources
Aesthetics & Visibility
^ Add as inconspicuously as possible.
^ Color, shape and proportions of the solartechnology and mounting systems should
match the colour, shape and proportions of the roof.
^ Installations should match the shape of the roofline on elevations and roof slopes that
are visible from the public realm.
^ Add in a mannerthat respects the exteriorform of buildings and landscapes.
^ Setback installations from edge of flat roofs to avoid visibility from the public realm.
^ Avoid impacts to heritage values and attributes.
^ Avoid hiding or obstructing heritage attributes.
^ Ground mounted structures visible from the public realm should be screened with
appropriate materials found elsewhere on the property or Heritage Conservation
District.
Design & Installation
^ Ensure that the weight can be borne by the supporting structure (e.g. roof rafters).
^ Install flush with the roof.
^ Mount at the same angle as the roof.
^ Avoid installations that extend beyond the edge of the wall or roof.
^ Single installations on single-plane roofs are preferable to disjointed arrays or arrays on
multiple roofplanes.
Location
^ Locate on elevations and roof slopes that are not visible from the public realm.
^ Installations on accessory buildings with no heritage values or attributes, which do not
impact the character of the property or Heritage Conservation District are preferred.
^ Locate behind existing architectural features (e.g. parapets, dormers, chimneys, etc.) in
order to reduce visibility from the public realm.
^ Avoid locating on or forward of the front face of the building.
^ Avoid locating in a front yard or in a side yard abutting a street.
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Reversibility & Physical Impact
^ Avoid the removal of historic materials.
^ Avoid alterations to heritage attributes.
^ Installations should be reversible (e.g. future removal should allow forthe exteriorform
to be returned to its original condition).
^ Minimize damage by planning for both installation and removal.
Proposals to install solar technology on cultural heritage resources will be discouraged where:
^ Removal of historic materials is required;
^ Removal or alteration to historic roof configuration and/or heritage attributes is
required; and,
^ Installation causes irreversible alterations to heritage attributes.
Proposals to install solar technology on Part IV and Part V (Group A, B, and C) cultural heritage
resources will require a Heritage Permit Application.
Proposals to install solar panels on Group D cultural heritage resources within Heritage
Conservation Districts and listed non-designated properties of cultural heritage value or interest
on the Municipal Heritage Register are strongly encouraged to consider these guidelines but do
not require a Heritage Permit Application.
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