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HomeMy WebLinkAboutDSD-18-107 - HPA-2018-V-018, 019, 020 - 242, 254, 262 Queen Street SouthREPORT TO: Hertiage Kitchener DATE OF MEETING: September 4, 2018 SUBMITTED BY: Brandon Sloan, Manager of Long Range & Policy Planning 519-741-2200 ext. 7648 PREPARED BY: Leon Bensason, Coordinator, Cultural Heritage Planning, 519-741-2200 ext. 7306 WARD (S) INVOLVED: 9 DATE OF REPORT:August 20, 2018 REPORT NO.: DSD-18-107 SUBJECT: Heritage Permit Applications HPA-2018-V-018 (242 Queen St. S.), HPA-2018-V-019 (254 Queen St. S.) and HPA-2018-V-020 (262 Queen St. S.) – Proposed Demolition ___________________________________________________________________________ RECOMMENDATIONS: 1.THAT pursuant to Section 42 of the Ontario Heritage Act, Heritage Permit Application HPA- 2018-V-018 to permit the demolition of the building located on the property municipally addressed as 242 Queen Street South be approved, subject to the following condition: That the owner obtain heritage approval under the Ontario Heritage Act and a Building Permit under the Building Code for a replacement building, prior to the issuance of a demolition permit. 2.THAT pursuant to Section 42 of the Ontario Heritage Act,Heritage Permit Application HPA- 2018-V-019 to permit the demolition of building located on the property municipally addressed as 254 Queen Street South be refused. 3.THAT pursuant to Section 42 of the Ontario Heritage Act, Heritage Permit Application HPA- 2018-V-020 to permit the demolition of the building located on the property municipally addressed as 262 Queen Street South be refused. BACKGROUND: The DevelopmentServices Department is in receipt of Heritage Permit ApplicationsHPA-2018-V-018, HPA-2018-V-019 and HPA-2018-V-020requesting permission to demolish the youth shelter andservices building located at 242 Queen Street South, and twoformer single detached dwellings (now converted to office use) on properties municipally addressed as 254and 262Queen Street Southrespectively. *** This information is available in accessible formats upon request. *** Please call 519-741-2345 or TTY 1-866-969-9994for assistance. 1 - 1 Conestoga Towers Location Map: 242, 254, 262Queen Street South The three subject properties are located on the west side of Queen Street South between Courtland Avenue West and Joseph Street in the Victoria Park Area Heritage Conservation District (VPAHCD), and are designated under Part V of the Ontario Heritage Act. The properties form one of two areas of low- rise development located north of Courtland Avenue in the vicinity of the Conestoga Towers high-rise building. 242 Queen Street South (Front Elevation) 1 - 2 The property municipally addressed 242 Queen Street South (see image on previous page) is occupied with a purpose built youth shelter and services building. The 2½ storey structure was constructed in 2007 and features architectural detailing characteristic of traditional residential properties within the heritage district (e.g. full width front porch). The design of the building was approved by City Council through issuance of a heritage permit. The building replaced a previously converted single detached dwelling destroyed by fire in 2005. The properties municipally addressed as 254 and 262 Queen Street South are former single detached dwellings built in the 1880s. Both buildings were converted to office use before the establishment of the VPAHCD in 1996. 254 Queen Street South (Front Elevation) 262 Queen Street South (Front Elevation) 1 - 3 All three properties are currently occupied. A building condition assessment undertaken on behalf of the applicant advises that the buildings are structurally sound and that 254 Queen Street South is in fair condition and 262 Queen Street South is in good to fair condition. The condition of both buildings is considered commensurate with their age and in comparable standing with other buildings of similar age in the area. The Official Plan designation and zoning applied to the subject properties and surrounding area along Queen Street South, anticipates adaptive re-use of the existing buildings as well as redevelopment at a higher density than currently exists on the subject properties. The Medium Intensity Mixed Use Corridor (MU-2) zoning in place permits a range of commercial, office and residential uses. The applicant is proposing to demolishall the buildings on the subject properties in order to construct an eight storey multiple residential building. The consent of City Council is required to demolish buildings and structures located on property designated under Part V of the Ontario Heritage Act. This report and the discussion which follows, considers the merits of the subject applications from a cultural heritage planning perspective. REPORT: VPAHCD Study & Plan In August 1995, a heritage consultant was retained by the City to complete the two phases of work involved in establishing a heritage conservation district in the Victoria Park area. The first phase involved preparation of the VPAHCD Study, which analysed the physical, social and economic fabric of the study area in confirming cultural significance, defining boundaries, and establishing conservation goals and objectives. The second phase of work which was completed in 1996, involved preparation of the VPAHCD Planwhich provides policy direction and strategies aimed at conserving and enhancing the historic character of the District. A primary goal of the VPAHCD is to conserve buildings and structures that contribute to establishing the historic character of the area. Demolition is addressed in the VPAHCD Plan under policies for Building Demolitionand under policies for New Building. While there is a strong presumption against demolition within the heritage district;in the Queen Street South corridor, demolition is acknowledged as a possibility where zoning permits significantly higher density than presently exists. The VPAHCD Study encourages pursuing innovative infill and the conservation and integration of historic buildings into new development rather than demolition and removal. Where removal is contemplated, moving buildings onto a new site is to be considered. Where relocation is not feasible, the policies state that the salvage of historic fabric shall be undertaken and the inclusion of architectural features into new building is encouraged. Heritage Impact Assessment A Heritage Impact Assessment (HIA) has been prepared by MHBC Planning on behalf of the applicant, and has been submitted in support of the Heritage Permit applications for demolition and a Site Plan application for redevelopment. The HIAmakes the following observations and conclusions. In conducting its evaluation of the subject properties, the HIA appliedthe criteria in Ontario Regulation 9/06 which was developed by the Province for the purposes of identifying and evaluating the cultural 1 - 4 heritage value or interest of a property for protection through individual designation under the Ontario Heritage Act. The HIA concludes that while all threeproperties have modest contextual value due to their location within the VPAHCD, only 254 and 262 Queen Street South demonstrate cultural heritage value as authentic heritage resources. 254 Queen Street South satisfies the criteria under the category of design / physical value, as the building is a representative example of the Italianate architectural style. 262 Queen Street South also satisfies the criteria under design / physical value, as a building representative of the Queen Anne architectural style, though the HIA adds that the building has been the subject of considerable alterations resultingin the loss of significant heritage attributes onthe front elevation. The HIA establishes that 262 Queen Street South also meets the criteria under historical / associative value given the property has direct associations with C.A. Ahrens (both father and son of the same name),who were prominent businesspersons and who made significant contributions to the community. Alternative development scenarios are reviewed withinthe HIA, including a Do Nothing scenario; development scenarios ranging in density and that would see portions of 254 and 262 Queen Street South being retained and integrated into a new building; and finally a scenario addressing relocating the subject buildings. The HIA concludes that pursuing a Do Nothing approach and retaining all three buildings would leave little opportunity to intensify the site in accordance with the existing zoning. The HIA establishes that development scenarios integrating 254 and 262 Queen Street South would either exceed the height and density permitted in the zoning if yielding the same number of units proposed by the applicant (124 units); be in non-compliance with certain zoning regulations if constructingto the maximum allowable building height of 8 stories; or yield only half the number of units proposed by the applicant, if designed to be in compliance with the zoning. In regard to relocating the buildings to another site, the HIA advises that an appropriate lot for relocation has not been identified and that nostructural assessment has been undertaken to confirm feasibility in regards to relocation.The HIA states that relocation would result in adverse impacts, including the loss of their frontage and location insituon Queen Street South as part of the VPNHCD. Final recommendations are made under two scenarios. Under the scenario where all buildings are to be demolished, the HIA recommends that a cultural heritage documentation and salvage report be prepared for the existing buildings located at 254 and 262 Queen Street South. Under the scenario where 254 and 262 Queen Street South are to be partially retained and integrated into the development, the HIA recommends that a Conservation Plan be preparedto further examine the conservation and retention of the two historic buildings. The HIA concludes that the demolition of all three subject buildings will only have a minor adverse impact on the VPAHCD, and is an acceptable outcome given the buildings are: located in the Queen Street South corridor, isolated from the low density residential neighbourhood that forms the majority of the Heritage Conservation District, and are of an architectural style and age that is well represented in the HCD. Heritage Staff Comments Heritage Planning staff are not in agreement with the conclusion made in the HIA that the demolition of all three buildings will only have a minor adverse impact on the VPAHCD. 1 - 5 Importance of Queen St. S. and value of subject heritage properties cited in the VPAHCD Study Heritage staff are of the opinion that the importance of the Queen Street South corridor and value of 254 and 262 Queen Street South are well documented in the VPAHCD Study. In describing areas of existing development within the heritage district study area, the VPAHCD Study makes the following observations specific to the two pockets of low-rise development located opposite and south of the Conestoga Towers high rise building, which include the subject properties (boldfont added by author of this report for emphasis): These two areas contain a number of fine Queen Anne style residences, most of which have been converted into offices and businesses. Their historical authenticity and structural condition varies. All, however, can be restored practically and economically to create a distinctive historic group. A significant detraction is their context, being located between high-rise buildings. Municipal land use planning permits high density commercial residential development, similar to the 18-storey Conestoga Towers. Although this suggests redevelopment of the sites to the permitted higher density, this need not inevitably result in the removal of the historic buildings. Innovative infill and backyard development can achieve high densities together with conservation. This would result in a more varied, interesting and attractive streetscape. (VPAHCD Study, p.59-60) The VPHCD Study also references the challenge that lies ahead for this area of the heritage district in the following passage: ”The Queen Street South corridor, however, is designated for significant intensification through increased building density and height north of Courtland Avenue, and moderate intensification to the south. This threatens a number of fine Queen Anne style residences north or and opposite Conestoga Towers on Queen Street South and destabilizes the historic character of the streetscape south of Courtland Avenue. Without careful planning, visual evidence that this is one of the earliest andmost historic streets in the city could decline.Practical and effective conservation guidelines can avoid this and ensure a streetscape that is once beautiful, distinctive and historic”.(VPAHCD Study, p.17). thth In the 22 years since the approval of the VPAHCD in 1996, a number of late 19and early 20century buildings have been demolished on Queen Street South due to fire, structural instability given long term neglect, or redevelopment. There is fewer physical evidence that Queen Street South is one of the earliest and most historic streets in the City, than when the HCD was established. The HIA suggests that 262 Queen Street South no longer makes an important contribution to the historic character of the Victoria Park Area due tounsympathetic additions made to the front (south) elevation of the building. This does not align with statements made in the VPAHCD Study. The alterations made to 262 Queen St. S. including enclosure of the front porch, were already complete by the time the VPAHCD Study was underway, yet the Study speaks positively to the contribution both254 and 262 Queen Street South make to the character of the area. The VPAHCD Study describes 254 Queen Street South as “a 2 storey buff brick hipped roof Italianate style residence, circa 1890, with single storey side wing and front verandah. Attractively landscaped and excellently conserved”. 1 - 6 The VPAHCD Study describes 262Queen Street South as “a 2½ storey painted brick multi-gabled and dormered circa 1890 Queen Annestyle residence in near original condition but with modified closed-in front verandah. Many decorative details, with attractive landscaping and well maintained”. The Study goes so far as to include images of both 254 and 262 Queen St. S. in the Study document as examples of adaptive re-use and good conservation practice. Historic / Associative Value of 262 Queen St. S. characteristic of a local Berlintradition In addition to identifying 262 Queen St S as being of design/physical value, the property also has significant historic/associative value, having been the residence of C.A. Ahrens Senior and Junior. Both father and son built factories in close proximity of their place of residence on Queen Street South. C.A. Ahrens Senior built the Ahrens Shoe Company building at 45 Queen St. S. (now the Working Centre building); and C.A. Ahrens Junior built a factory within the VPAHCD on the corner of Linden and Michael Streets (now 5 Michael Street). The subject property at 262 Queen Street South contributes to a greater understanding of the local Berlin industrial era tradition of industrialists, workers and factories being in close proximity to each other. VPAHCD Study & Plan encouraging integration rather than demolitionon Queen St. S. As previously noted, the VPAHCD Study states that redevelopment along Queen Street South to permitted higher densitiesneed not inevitably result in the removal of historic buildings. The Study cites that innovative infill and backyard development can achieve high densities together with conservation, andresult in a more varied, interesting and attractive streetscape.The Study references the mid-rise building addition to the former Vogelsang Button Factory (now Bread & Roses Cooperative Homes) at 307 Queen Street South as a good example. Indeed, the retention of historic buildings along the street frontage with new development in the rear has been successfully undertaken on Queen Street South since the approval of the HCD, most notably at the Sandhills Retirement complex which preserved the former Schmalz house at the corner of Queen and St. George streets. Image showing Sandhills Retirement Complex at corner of Queen and St. George Streets 1 - 7 While the VPAHCD Plan acknowledges that demolition is a possibility along the Queen Street South corridor where zoning permits higher densities, the policies state that the conservation of historic buildings is a primary goal, and further, that property owners are encouraged to work with existing buildings, altering, adding to and integrating them into new development rather than demolishing. Current Medium Intensity Mixed Use Corridor (MU-2) zoning applied to the subject properties permit development having a building height of between 6m (2 storeys) and 24m (8 storeys), and a Floor Space Ratio (FSR) for new development of between 1.0 times lot coverage to a maximum 4.0 times lot coverage. The applicant’s proposal at 8 storeys and a FSR of 4.0 is at the highest end of what is permitted in the current zoning. In guiding efforts to mitigate impact on cultural heritage resources, the Province ofOntario establishes that alternative development approaches and reducing both density and height are appropriate measures to be applied in the context of addressing the Provincial Policy Statement, which states that built heritage resources shall be conserved. Development options presented in the HIA illustrate that redevelopment of the subject properties at higher densities while retaining both 254 and 262 Queen Street South is possible. Development Option 2 identified in the HIA (see Appendix ‘B’) illustrates that redevelopment at a height of 8 storeys and FSR of 4.0 with both 254 and 262 Queen Street South retained, would require relief of certain MU-2 zoning regulations, most notably requirements related to parking. Option 1 would result in a form of development that is in compliance with the zoning but at a height of 19.5m and FSR of 2.6 (slightly more than the midpoint between the minimum and maximum building height and density permitted). It is heritage staff’s position that redevelopment that retains both historic buildings while permitting a form of development well within the expected building height and density anticipated in the current zoning, is both feasible and reasonable. Review of Applications In reviewing the applications for demolition, Heritage Planning staff note the following: The subject properties are designated under Part V of the Ontario Heritage Act. 242 Queen Street South (youth shelter and services building) was constructedin 2007 and does not have the same cultural heritage value or significance as the other subject properties. Both 254 and 262 Queen Street South are structurally sound. 254 Queen Street South is in fair condition and 262 Queen Street South is in good to fair condition. The condition of both properties is considered commensurate with their age and in comparable standing with other buildings of similar age in the area. Both254 and 262 Queen Street South have design / physical value in accordance with the criteria in Ontario Reg. 9/06. 262 Queen Street South has historic / associative value in accordance with the criteria in Ontario Reg. 9/06 and is representative of Berlin industrial era traditions. The VPAHCD Study identifies the Queen Street South corridor as the earliest settlement area within the HCD and both 254 and 262 Queen Street South as good examples of adaptive re-use with features that contribute to the character of the HCD. The VPAHCD Study specifically identifies that fine examples of historic buildings on Queen Street South are under possible threat as a result of anticipated redevelopment to higher densities, and that 1 - 8 without careful planning visual evidence that this is one of the earliest and most historic streets in the city could decline. Since 1996 when the VPAHCD was established, most historic building loss within the HCD has been along the Queen Street South corridor. 254 and 262 Queen Street South are two surviving th examples of a declining number of late 19century buildings located on Queen Street South within the VPAHCD. The VPAHCD Study establishes that redevelopment to higher densities along Queen Street South need not result in demolition of historic buildings and can be achieved with innovative infill that retains and integrates historic buildings. The VPAHCD Plan policies for demolition state that the conservation of historic buildings in the Area is a primary goal. Further, that property owners are encouraged to work with existing buildings, altering, adding to and integrating them into new development rather than demolishing. The HIA prepared in support of the subject applications for demolition includes development options illustrating that redevelopment to higher densities in compliance with the existing zoning while retaining the significant portions of 254 and 262 Queen Street South is possible. Approval of the demolitions of 254 and 262 Queen Street Southmay set a precedent for further demolitionsalong the Queen Street South corridor in the VPAHCD. In accordance with the preceding comments, heritage planning staff do not support the applications to demolish 254 and 262 Queen Street South, but are in conditional support of the application to demolish 242 Queen Street South, subject to the owner obtaining heritage approval under the Ontario Heritage Act and a Building Permit under the Building Code for a replacement building, prior to the issuance of a demolition permit. Heritage staff are of the opinion that a balance of heritage and development interests can be achieved on the subject properties, and that redevelopment to a built form having a higher density can result in a manner that conserves and retains significant portions of 254 and 262 Queen Street South. Staff are prepared to work cooperatively with the applicant at further examining conservation options, including alternative development approaches that may necessitate making adjustments to the proposed built form, as well as give consideration to providing relief to certain zoning regulations. Staff are in agreement with the VPAHCD Study that such innovative approach would result in a more varied, interesting and attractive streetscape,that conserves rather than demolishes the historic fabric of the VPAHCD. Should Heritage Kitchener or Council wish to approve the demolition of either or both of 254 and 262 Queen Street South in addition to 242 Queen Street South, then Heritage Planning staff suggest that the applications be approved with the following condition, consistent with the recommendation made in the HIA: That a cultural heritage documentation and salvage report be prepared for the existing buildings located at 254 and 262 Queen Street South which includes: o Photograph documentation of the interior and exterior of the buildings; o Measured architectural drawings of the exterior of the buildings at all elevations; and o Recommendations for identifying and salvaging heritage fabric as opposed tobeing discarded as landfill; This includes recommendations regarding materials which may be considered for salvage and incorporation with the proposed building, andmaterials which may be made available to the public in order to supportthe conservation of other local heritage resources. 1 - 9 The approval of an application under the Ontario Heritage Actshall 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 Kitchener’s Zoning By-law. Redevelopment of the subject properties will require the consent of Council under the Ontario Heritage Act, in accordance with the policies for New Building in the VPAHCD Plan. ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN: The recommendationsof 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 agendain advance of the Heritage Kitchener committee meeting. CONSULT - Heritage Kitchener has been consulted regarding the subject Heritage Permit Application. ACKNOWLEDGED BY: Alain Pinard, Director of Planning APPENDICES: Appendix A:Heritage Permit Applications HPA-2018-V-018 (242 Queen St. S.), HPA-2018-V-019 (254 Queen St. S.) and HPA-2018-V-020 (262 Queen St. S.) Appendix ‘B’:Excerpt from Heritage Impact Assessment dated August 2018 prepared by MHBC (includes Executive Summary, Section 8.0: Alternative Development Approaches, Section 10: Conclusions and Recommendations; and Development Options Illustration prepared by NEO Architecture). 1 - 10 IFSJUBHF!QFSNJU!BQQMJDBUJPO!GPSN! Bqqmjdbujpo!Op/! Djuz!pg!Ljudifofs! IQB.3129.! Dpnnvojuz!Tfswjdft!Efqbsunfou! ui Qmboojoh!Ejwjtjpo-!7!Gmpps! 311!Ljoh!Tusffu!Xftu! Ljudifofs-!Poubsjp!O3H!5H8! )62:*!852.3537! Obuvsf!pg!Bqqmjdbujpo! Fyufsjps!Joufsjps!!Tjhobhf! Efnpmjujpo!Ofx!Dpotusvdujpo!Bmufsbujpo!Sfmpdbujpo! Tvckfdu!Qspqfsuz! 353!Rvffo!Tusffu!Tpvui-!Ljudifofs Nvojdjqbm!Beesftt;!! Qu/!Mpu!68-!Qmbo!4:4 Mfhbm!Eftdsjqujpo!)jg!lopxo*;!! Cvjmejoh0Tusvduvsf!Uzqf;!Sftjefoujbm!Dpnnfsdjbm!Joevtusjbm!Jotujuvujpobm! Wjdupsjb!Qbsl!Bsfb!IDE Ifsjubhf!Eftjhobujpo;!!Qbsu!JW!Qbsu!W!)IDE*!! Jt!uif!Qspqfsuz!tvckfdu!up!b!Ifsjubhf!Fbtfnfou!ps!Bhsffnfou@!Zft!Op! Qspqfsuz!Pxofs! Obnf;! Beesftt;! Djuz;!Qptubm!Dpef;! 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