HomeMy WebLinkAboutDTS-06-142 - Amendment No. 64 To The Municipal Plan
J
Development &
Technical Services
Report To:
Date of Meeting:
Submitted By:
Prepared By:
Ward(s) Involved:
Date of Report:
Report No.:
Subject:
Development and Technical Services Committee
October 2, 2006
Jeff Willmer, Director of Planning 741-2325
Cory Bluhm, Planner, 741-2776
1 & 6
September 27, 2006
DTS-06-142
MP06/07/TC/CB
New Downtown Design Policies
RECOMMENDATIONS:
1 a) That Municipal Plan Amendment Number 64 (MP06/07/TC/CB) be tabled, in the form
shown in the attached "Proposed Municipal Plan Amendment" to introduce new general
urban design policies for Downtown Kitchener, and be considered for adoption at the
October 23rd DTS Committee Meeting.
b) That staff be directed to develop "Design Brief DB-5 - Downtown Design Districts", for
consideration at the October 23rd meeting of Council, so that it may be adopted and
included in the City's Urban Design Manual. The purpose of the Design Brief is to
provide a graphical version of the Downtown Design District policies, contained in
section 9.3, including photographs, renderings, etc.
2. That the Civic Centre Neighbourhood Heritage Conservation District (CCNHCD)
consulting team be asked, through the City's Heritage Planner, to comment, during the
work plan phase of the CCNHCD study, on the original proposal that no height limit be
applied to new buildings within the Civic District, so that they may assess whether any
impact may occur on the heritage resources of the Civic Centre neighbourhood.
This computer generated model shows what Downtown
could evolve to under the proposed policies.
BACKGROUND:
The new policies and design brief are directly reflective of the results of the 'Help Design
Downtown Kitchener' public consultation process, and are consistent with the Downtown
Strategic Plan, Regional Growth Management Strategy and Growth Plan for the Greater Golden
Horseshoe.
Draft policies were presented to Council in August, and the public were invited to comment
throughout the month of September. The attached policies have been modified, where
appropriate, to reflect the feedback received.
The attached policies will replace existing Downtown policies in sections 6.2 (Downtown Urban
Design) and 9.0 (Downtown) of the Municipal Plan. Current policies determined still to be
necessary have been retained and reworked in the policy.
The purpose of these policies are as follows:
. To establish a design-based approach to planning Downtown Kitchener;
. To crystalize the vision and objectives of the community, as they relate to the future
form, function and feel of Downtown Kitchener;
. To enable and coordinate public sector investment (financial incentives, engineering
standards, economic development initiatives, etc.);
. To provide guidance to private sector development; and,
. To enable staff to develop amending bylaws (zoning, sign, etc.), guidelines and
standards to regulate and encourage improved design of private sector development.
REPORT:
This report marks a potential landmark moment for Downtown Kitchener. For the first time since
1965, the City of Kitchener, thanks to wonderful participation from community residents and
stakeholders, has been able to develop an exciting vision for Downtown's built form.
The policies provide a direction for Downtown's urban evolution which is entrenched in the
fundamental values of this community, and embrace the spirit and soul of what defines
Kitchener. Through the Help Design Downtown survey, lively streets, a livable core, design
excellence, cultural heritage, arts and multi-culturalism were identified as the fundamental
values that should be celebrated in every new development.
This amendment aims to guide new development by articulating these fundamental values
through design-based policies, in hopes that developers, merchants, and design professionals
(including City and Regional staff) will embrace this community-based vision.
Consolidating the viewpoints, perspectives and ideals of a community our size into a vision and
policy that addresses the interests and aspirations of all is no simple task. For instance, survey
results indicated that a large portion of our community wish to see a bustling urban core, while
others prefer to see a small-town, laid back core. In true community-based fashion, the policies
attempt to create unique urban settings within each district, each appealing to a distinct set of
values and interests, so that collectively, we may all celebrate in a downtown that reflects all
facets of our community.
Over the past 5 years, various City staff have visited urban centres across Europe and North
America, to understand the designs, principles and directions that are allowing downtowns to
2
thrive locally and also compete in a global economy. This has included an examination some of
the world's most historic downtowns, such as in Paris, Madrid and Montreal, some of the most
progressive downtowns, such as in Vancouver, Portland, New York City, and Barcelona, as well
as some of the most thriving downtowns of mid-sized cities, such as Edinburgh, Nice, Victoria
and Santa Monica.
Planning staff are confident that the proposed design policies will allow Downtown Kitchener to
evolve in the same direction that has allowed these great downtowns to thrive and become
icons of dynamic street life, civic beauty and design excellence.
SUMMARY OF MAJOR ISSUES:
Considerable discussion and comments were generated through the presentation of the
proposed policies to the Downtown Advisory Committee, Heritage Kitchener, the Arts and
Culture Advisory Committee, the Public Art Working Group, and the Culture Plan 2
implementation team. In addition, all property owners and 'Help Design Downtown' survey
respondents were invited to provide their feedback, although limited written feedback was
received.
The following summarizes the major issues that developed from these discussions:
1) Strenqtheninq the Heritaqe Policies
Heritage Kitchener gave clear direction to staff that the heritage conservation policies needed
strengthening. As such, new polices have been included, and the language has been
strengthened to reflect the intent of the new Provincial Policy Statement. Concerns were also
raised that unlimited building heights in the Civic District may impact the heritage resources of
the Civic Centre Neighbourhood. As such, any mention of building height has been deleted, so
that it may be reviewed by the Civic Centre Neighbourhood Heritage Conservation District
consulting team, to be properly addressed when considering new zoning to implement these
policies.
2) Rethinkinq Cultural Districts
Cultural advisory groups suggested that the policies should not present the notion that the City
is forcing certain types of culture into certain districts. Rather, they feel that culture should grow
organically. As such, planning staff have revised the wording of the policies, simply to
characterize each district based on the types of cultural activities which appear to be emerging.
3) On-street Parkinq
Two businesses have noted concern over the lack of direction on parking, specifically on-street
parking. The community identified on-street parking being of limited importance, with a
preference for parking structures. However, as members of the KDBA board have disagreed
with this finding, staff chose not to include parking policies. It is our opinion that parking issues
are better suited for strategic planning exercises, rather than official plan policy, so that the City
can adapt to changing trends in consumer shopping and parking habits.
3
4) Appropriateness of havinq desiqn district "policies". rather than "quidelines"
Two respondents, who work in urban design professions, have questioned the appropriateness
of the City introducing policies that identify preferred styles, streetscapes, storefronts, etc. They
have suggested that most municipalities would incorporate such elements as guidelines, rather
than introducing "heavy handed" policies. They have also suggested that a design guideline
allows the opportunity to include graphics to better explain the intent of the policies.
After considerable review by Planning staff, it is staff's opinion that the policies are not worded
to be "heavy handed", but rather, give strong guidance towards the preferred vision the
community has articulated through the design survey. They provide a reasonable framework
and parameters for designers to work within, allowing them to express their own creativity while
ensuring that a certain level of quality and consistency is achieved. The policies are not meant
to read like zoning bylaws, but are open to creative interpretation. As such, staff have adjusted
the wording of the policies to be less prescriptive in nature, and more directive.
While it may be standard practice in the past (particularly amongst Ontario municipalities) to use
design guidelines rather than design policies, North American communities are increasing
moving towards design-based planning and form-based policies. It is the opinion of staff that
the strength and longevity provided by a Municipal Plan is the appropriate format to express this
community's long term desires, values and objectives for the evolution of Downtown's form.
Ironically, the growth of Busy Berlin, in the 1880s, was founded by a non-standard approach of
the Town Council and Board of Trade. As industrial growth was considered essential to the
progress of our community, Berlin was one of the few towns that offered tax incentives and local
capital investments for new industry. The approached resulted in our community outperforming
every other Ontario town in recruiting new industrial manufacturing.
Today our community has told us that beautification and good design is important to the
progress of our community and the evolution of Downtown. As such staff believe it merits a new
approach.
Staff do agree, however, that the use of photographs, renderings and images would help to
further everyone's understanding of the intent of the design policies. As such, staff are
recommending that a design brief be prepared, for inclusion in the Urban Design Manual, which
provides a graphical version of these policies.
SUMMARY OF CHANGES TO THE POLICIES:
The following is a summary of the major changes made to the initial draft policies, based on
feedback received in September:
Obiectives
. The requirements of the primary objectives has been strengthened to read - "must
demonstrate a direct contribution to each of the following primary objectives";
. The requirements of the secondary objectives has been strengthened to read - "must
demonstrate a reasonable contribution to each of the following secondary objectives";
4
. For both primary and secondary objectives, the phrase "where deemed applicable by the City
of Kitchener" has been added, giving staff and Council the discretion of which objectives
apply to individual projects;
. "A wide range of residential housing options" was added to secondary objective (i);
. "The City encourages innovation and architectural excellence in urban development" and
"... building elevations, building massing" has been added to secondary objective (i);
. Secondary objective (ii) has been revised, based on Heritage Kitchener feedback, to read
"significant cultural heritage resources... shall be conserved" to be consistent with the
Provincial Policy Statement; and,
. Secondary objective (iii) has been split in two. The Culture Plan Implementation team felt
multi-culturalism deserved its own distinction.
Downtown Policv #1 - Livelv Commercial Streets
. The title of the policy has been modified from "King Street" to "Lively Commercial Streets" as
these policies should be applied to all streets, and the title better reflects the primary
objective;
. Policy (i) has been added as follows: "Ensure a high quality streetscape and public realm";
. Policy (ii) and (iv) have been modified to say "required" rather than "encouraged"; and,
. "Informal gathering spaces" has been added to policy (v) for the use of sidewalk width;
. "Decorative lighting and appropriate building materials should reinforce the character of the
street" has been added to policy (vi);
. Policy (ix) has been added as follows: "encourage the incorporation of water features and
public art into new site designs".
Downtown Policv #2 - A Livable. Green Downtown
. The title of is policy has been changed from "Green the Downtown" to "A Livable, Green
Downtown" to better reflect the primary objectives;
. Policy (ii) has been added as follows, the City shall "continue to enhance and soften
parkettes (such as Vogelsang Green, Market Green, etc.) along greenscape corridors, and
shall seek out opportunities to develop new parkettes";
. Policy (iii) has been changed to "develop engineering standards and specifications" as
requested by Engineering staff;
. "Minor building setbacks may be considered, subject to providing enhanced landscaping and
street tree plantings" has been added to policy (v); and,
. Policy (vii) has been changed by deleting the ambiguous term of "sustainable building
designs" as suggested by the City's Environmental Planner.
Downtown Policv #3 - Downtown Desiqn Districts
. Map 7a has been added to identify the 4 districts;
5
. "The City shall promote innovation, architectural excellence..." has been added to the
introduction;
. For each district, the term "shall have regard for the following general design principles" has
been replaced with "shall be consistent with the following general design principles" to align
with the wording of the Provincial Policy Statement;
Downtown Policv #3 - Downtown Desiqn District - City Centre District
. Policy 1 b, entitled "Style (historic buildings)", was added to encourage contemporary design
elements that are respectful of cultural heritage resources, as per suggestions from Heritage
Kitchener;
. Policy 2a has been modified slightly by adding "additional storeys may be permitted provided
they are located at street intersections... "
. Policy 2b was revised to reduce the minimum setback of the fourth and successive floors
from 10 metres to 3 metres. This will still achieve pedestrian comfort along the street level,
while accommodating additional density on upper floors;
. "The City may require articulation of building facades and rooftops" has been added to
policies 2a and 2b;
. "Patio fencing" was added to Policy 3, as a streetscape component that should have a
contemporary design style.
Downtown Policv #3 - Downtown Desiqn District - Market District
. Policy 2b entitled "Building Height & Form (Weber Street, between Scott Street and Cedar
Street)", was added to clarify the differences between a preference for redevelopment along
this section of Weber Street, versus the retention of the built form on all other streets.
. "The City may require articulation of building facades and rooftops" has been added to
policies 2a, 2b and 2c;
. Policy 3 was expanded to also recognize the importance of intimate restaurant and seating
areas, such as Market Village.
Downtown Policv #3 - Downtown Desiqn District - Warehouse District
. "The City may require articulation of building facades and rooftops" has been added to policy
2a;
. Policy 2a was added on to by recommending a maximum facade height of 3 storeys along
existing residential streets (Linden, Oak, Michael, Breithaupt), and "where possible, access
points, service areas and mechanical equipment should be located away from adjacent
residential areas.
. Policy 2a was also added on to by allowing reduced or additional building heights for lands
not abutting Victoria Street, to allow greater flexibility for the UW Health Sciences campus
and buildings located closer to existing residential areas.
. Policy 2b entitled "Building Height & Form (Adaptive Reuse)" was added to establish design
policies specific to former industrial buildings.
6
Downtown Policv #3 - Downtown Desiqn District - Civic District
. The statement "no maximum building height shall be imposed" has been deleted from Policy
2, so that the consultants for the Civic Centre Heritage Conservation District may assess the
appropriateness of such a policy on the potential HCD. Staff will revisit the appropriate
building height during a review of the zoning bylaw, to implement these policies.
. Policy 2 was also expanded to reference historically significant buildings in and adjacent to
the District.
Downtown Policv #4 - Downtown Desiqn District - Cultural Heritaqe
. Policies (i) and (ii) have been revised according to suggestions from Heritage Kitchener, to
better articulate heritage conservation matters.
. Policy (iii) was added to reference the Royal Crossroads.
. Policy (v) was modified to add Queen Street (from Ellen to Weber) as a vista worth
preserving, as suggested by a member of Heritage Kitchener.
. Policy (vi) was added to encourage better public appreciation of cultural heritage resources,
as recommended by the City's Heritage Planner.
Downtown Policv #5 - Public Art. Culture & Multi-Culturalism
. The preamble and policy (i) have been revised, based on feedback from all arts advisory
groups, to read as characteristics of culture within each district, and not to read as if the City
will try to force certain types of culture into a specific district.
. Policy (ii) was revised to include streetscape master plans as a second tool for identifying
public art locations. Also, potential funding mechanisms, such as a private sector percent-
for-art policy, were added.
. Policy (iii) was revised by adding "through flexible zoning provisions and consideration of
financial incentives" as the method to which the City would support live-work developments.
It should be noted that the inclusion of the term "financial incentives" does not require the us
to do so, but simply enables the City to develop a CIP for live-work, should we chose to do so
in the future.
Strateqies for Implementation
. Strategy 2 (i) was modified by adding"... and develop a strategy for implementing new tree
plantings" to ensure that new standards for tree planting translates into action.
. Strategy 4 was revised slightly to suggest that a Frederick-Benton Corridor could be
designed to celebrate the community's German roots, as suggested by two different
respondents.
. Strategy 5 was added to identify priorities for heritage conservation, as recommended by the
City's Heritage Planner.
. Strategy 6 was added to recommend site specific design briefs for major redevelopments.
7
FINANCIAL IMPLICATIONS:
There are no capital budget implications at this time.
COMMUNICATIONS:
A page on the City's website was developed which includes all relevant information pertaining to
the proposed policies and public meeting.
A user's guide was developed and published on the website, to allow community members to
easily understand the intent of the policies (see attachment).
Notice of the public meeting was advertised in The Record on September 8, 2006.
Notice of the proposed policies and public meeting was sent to all property owners within
Downtown Kitchener, as well as to all applicable agencies.
Staff invited respondents of the Help Design Downtown consultation (approximately 300) to
provide input on the proposed policies.
Staff met with the KDBA Board on August 15th to allow them to help shape the draft policies.
Staff met with the following groups in September - DAC, Heritage Kitchener, ACAC, Culture
Plan 2 Implementation Team, and the Public Art Working Group.
Staff invited neighbourhood feedback through emails to Neighbourhood Association
representatives within the Central Neighbourhoods.
CONCLUSION:
Based on the foregoing, Planning staff believe the proposed municipal plan amendment is
reflective of the desires and values of our community, adequately reflects the concerns of the
respondents, is reflective of recent and ongoing strategic investments, is reflective of Regional
and Provincial policy changes, provides a fresh and exciting designed-based approach to
downtown planning, and will guide Downtown Kitchener in the right direction towards becoming
a thriving urban core that can compete in a global marketplace.
Cory Bluhm RPP MCIP
Planner
Jeff Willmer RPP MCIP
Director of Planning
Attachments
Proposed Municipal Plan Amendment & Map No. 7a
8
Current Downtown Policies
Your Guide to Understanding the Proposed Downtown Design Policies
Appendix A - Agency Responses
Appendix B - Public Responses
9
AMENDMENT NO. 64 TO THE MUNICIPAL PLAN
OF THE CITY OF KITCHENER
SECTION 1 - TITLE AND COMPONENTS
This Amendment shall be referred to as Amendment No. 64 to the Municipal Plan of the
City of Kitchener. Sections 1 to 4 inclusive of this document shall constitute the
Amendment.
SECTION 2 - PURPOSE OF THE AMENDMENT
The purpose of the proposed Municipal Plan Amendment is to introduce new design
policies for Downtown Kitchener, to replace existing Downtown urban design policies,
and generic Downtown policies, using a design-based approach to planning.
This amendment does not deal with any changes to Downtown land use designations
(which will remain the same), but rather, provides a design framework for new
development.
SECTION 3 - BASIS OF THE AMENDMENT
Back2round
From May to July of 2006, the City of Kitchener conducted a broad public consultation
exercise, entitled 'Help Design Downtown'. Citizens were asked to comment on how
they would like to see the look and feel of Downtown evolve as growth and
redevelopment continues. Approximately 1,000 citizens participated, providing a strong
basis for identifying a community-based vision, objectives and design policies.
Proposed Policy Structure
The proposed policies are intended to reflect the objectives and key areas of focus which
the community has identified, and to establish an exciting new vision for Downtown
Kitchener's evolution:
Vision
To make Downtown a great people place.
Primary Objectives
To make downtown 1) lively, with active street life; and 2) livable, by greening and
softening Downtown's streets and public spaces.
1
Secondary Objectives
To 1) inspire creative, high quality design of streets, buildings, etc., 2) respect our
cultural heritage; 3) embrace art and culture, and 4) embrace our multi-cultural diversity.
Downtown Policies
These policies have been arranged in sections, to implement each of the previous
objectives. They provide a more detailed design framework to guide new development
and encourage a distinct character for each of Downtown's four districts.
In addition, general transportation policies have been included which reflect the
community's preferred approach to Downtown's streets, with an emphasis on improving
the pedestrian environment of our streets, even if it results in slower traffic.
Strategies for Implementation
These strategies are intended to scope out the work the City anticipates it will conduct
over the next 5 years. This includes the development of urban design guidelines for
specific areas of interest, greenscape improvements, cultural heritage initiatives and a
review, in conjunction with the Region of Waterloo, of opportunities for improving the
Frederick - Benton Corridor.
SECTION 4 - THE AMENDMENT
The Municipal Plan for the City of Kitchener is hereby amended as follows:
1) Part 2, Section 6.2 "Downtown Urban Design" is amended by deleting this section in
its entirety;
2) A new Map 7b "Downtown Design Districts" is added, to be inserted following Part 2,
Section 9.
3) Part 2, Section 9 "Downtown" is amended by deleted this section in its entirety, and
replaced with the following new Part 2, Section 9 "Downtown":
2
9. DOWNTOWN
Historically, downtown Kitchener has been the focal point of the Region. It has been a
centre for trade, politics, entertainment, arts and culture. Today, the vision for downtown
Kitchener is clear - to make downtown a great place for people.
The community envisions this happening by fostering a downtown with lively street
activity for all to enjoy, through great shopping, markets, restaurants, outdoor patios and
outdoor events. Downtown should have green, liveable streets combined with a creative,
high quality urban design of buildings, storefronts and public places. Downtown's
heritage should be conserved and celebrated while embracing new forms of artistic and
multi-ethnic culture.
Primary Objectives
All development, including new construction, renovations, adaptive reuse, fa<;ade
improvements, streetscape improvements and public space improvements, must
demonstrate a direct contribution to each of the following primary objectives, where
deemed applicable by the City:
i) To make downtown lively - by creating a great place for people with lively
street activity (retailing, restaurants, outdoor patios and entertainment), a wide
range of residential housing options, and a safe, attractive public realm
featuring places and spaces that provide for diverse and stimulating
experIences.
ii) To make downtown livable - green the downtown by maximizing plant
material (such as street tree plantings, flower beds, landscaped gardens, and
rooftop gardens) along streetscapes, along pedestrian pathways and
throughout public and private spaces.
Secondary Objectives
All development, including new construction, renovations, adaptive reuse, fa<;ade
improvements, streetscape improvements and public space improvements, must
demonstrate a reasonable contribution to the following secondary objectives, where
deemed applicable by the City:
i) Inspire creative., high quality design - the City encourages innovation and
architectural excellence in urban development. A high quality of urban design
is expected of downtown's buildings, building elevations, building massing,
storefronts, store signs, patios, streetscapes and public spaces to enhance street
life and create local pride and interest.
3
ii) Respect cultural heritage - significant cultural heritage resources (such as
buildings, monuments, streetscapes, landmarks, landscapes and possibly
views, vistas, trees and intersections) shall be conserved and celebrated.
iii) Embrace art and culture - through land use, signage, architecture, streetscapes
and public art, each downtown district will generate its own authentic flavour
of culture, creating a diversity of cultural experiences.
iv) Embrace multi-culturalism - the physical and visual expression of various
ethnic traditions, through elements such as architecture, signage and public
art, shall be supported and encouraged.
4
Downtown Policies
1. Lively Commercial Streets
Downtown will continue to function as the heart of downtown's social life, home to
restaurant and retail storefronts, bustling public spaces and animated sidewalks.
Downtown streets, such as King Street and Queen Street, have historically been the
centre of commercial trade and shopping. To enhance, animate and beautify these
streets, the City shall:
i) Ensure a high quality streetscape and public realm;
ii) Require a built form which is one of comfort to the pedestrian in its proportion,
scale and micro-climate. Applicable requirements for massing and micro-climate
studies may be further defined through the City's Zoning Bylaw and Urban
Design Manual;
iii) Promote a continuous building edge along the street, with minimal setbacks, to
visually define the public streetscape;
iv) Require active uses at street level which will contribute to street life, activity and
vitality;
v) Maximize the amount of sidewalk width available for outdoor retailing, restaurant
patios and informal gathering spaces, where appropriate;
vi) Require attractive and well designed ground floor facades which enhance
pedestrian interest and activity. This could include well-designed outdoor patios,
maximizing the use of windows and ground level entrances, and limiting
continuous blank facades. Decorative lighting and appropriate building materials
should reinforce the character of the street. Applicable requirements may be
further defined through the City's Zoning Bylaw and Urban Design Manual;
vii) Require attractive and well designed public and private sector signage.
Applicable requirements may be further defined through the City's Sign Bylaw
and Urban Design Manual;
viii) Encourage the use of canopies and awnings which extend over the sidewalk to
provide pedestrian comfort and shelter; and,
ix) Encourage the incorporation of water features and public art into new
site designs.
5
2. A Livable, Green Downtown
Creating a more livable downtown with a healthy urban lifestyle requires the
softening of the urban landscape with trees, parks and gardens. To enhance the
livability of downtown, the City shall:
i) Identify and establish greenscapes - a system of tree-lined corridors for sitting,
walking and cycling - generally along Duke Street, Young Street, Gaukel Street,
Charles Street East, Cedar Street, Frederick Street, Benton Street, Francis Street
and Joseph Street;
ii) Continue to enhance and soften parkettes (such as Vogelsang Green, Market
Green, etc.) along greenscape corridors, and shall seek out opportunities to
develop new parkettes.
iii) Develop engineering standards and specifications for tree planting along all
greenscapes, which support a strong root system, to be implemented during road
improvement projects;
iv) Incorporate facilities for alternative modes of transit (such as multi-use pathways
or bike racks, etc.) in all road improvement projects and encourage similar
facilities for all new development;
v) For new development which abuts a greenscape, require landscaping of all private
lands, to be coordinated with tree plantings in municipal rights-of-way. Minor
building setbacks may be considered, subj ect to providing enhanced landscaping
and street tree plantings. Applicable requirements may be further defined through
the City's Zoning Bylaw and Urban Design Manual;
vi) Identify opportunities for, and promote the development of, new pedestrian
pathways, trails and walkways within and leading to Downtown - such as along
rail corridors, rear laneways and internal to large block developments. This may
include identifying coordinated pedestrian pathway routes and landscape
requirements for groupings of private lands; and,
vii) Encourage, incent and support the use ofL.E.E.D. (Leadership in Energy and
Environmental Design) techniques and rooftop gardens.
6
3. Downtown Design Districts
Four distinct character areas, or design districts, make up the downtown. These
districts are identified on Map 7b "Downtown Design Districts".
The City shall promote innovation, architectural excellence and the enhancement of
the unique character, form, atmosphere and heritage of each design district through
the implementation of the following urban design policies, and through more specific
urban design guidelines and standards in the City's Urban Design Manual. The
policies, guidelines and standards may specify design elements such as, but not
limited to, architectural style, building height and form, articulation of building mass,
streetscape styles, ground floor facades, storefront design and signage.
i) City Centre District
The City Centre District is evolving into a compact, contemporary urban setting, with
taller buildings, lively street activity and a stylish mix of shops, restaurants and bars.
New development shall be consistent with the following general design principles:
la. Style (general) - a 'contemporary' design style is preferred, characterized by a
simplification of form, articulated massing, the use of glass, steel and brick as
preferred materials, avoidance of ornament details, and the transparency of
buildings.
1 b. Style (historic buildings) - the City supports the preservation of cultural heritage
resources, including upper-storey facades and traditional building columns and
fa<;ade openings. Contemporary design elements on historic buildings should be
limited to commercial signage, storefront windows and ground floor entrances.
These contemporary elements, and adjacent buildings, shall be respectful of, and
visually compatible with, the historic elements of the building;
2a. Building Height & Form (King Street) - for all new buildings, the minimum
fa<;ade height along King Street shall be 2 storeys, while the maximum fa<;ade
height shall be 3 storeys. Additional storeys may be permitted provided they are
located at street intersections, or stepped back from the front fa<;ade generally at a
45 degree angle. The City may require articulation of building facades and
rooftops.
2b. Building Height & Form (all other streets) - for all new buildings, the maximum
building fa<;ade height along the street line should be 3 storeys. No maximum
building height shall be imposed on additional floors, provided they are set back a
minimum of 3 metres from the street level fa<;ade. The City may require
articulation of building facades and rooftops.
3. Streetscapes - streets should be designed to maximize sidewalk space for outdoor
retailing, restaurant patios and informal gathering spaces. Streetscape designs
should incorporate contemporary design principles for street furniture, patio
7
fencing and light posts which reinforce the District's character and style, rather
than traditional ornamental features.
4. Storefronts - maximize the use of glass (floor to ceiling, and structural column to
structural column) and incorporate wide entry ways to create a transparent, open
concept ground level. Minimize non-structural details, such as ornamental
columns, window trim and moldings.
5. Signage - creative, artistic and contemporary commercial signs are preferred,
both fascia and projecting, which incorporate simplistic lettering and metal
finishes. Plastic or fiberglass signs shall be discouraged. Signs should be
externally illuminated, preferably with downward lighting. Backlit signs shall be
discouraged, except for metallic fascia signs with translucent lettering.
ii) Market District
The Market District is evolving into a traditional village setting, with smaller building
heights and a rich blend of culturally-diverse shops, boutiques and restaurants. New
development shall be consistent with the following general design principles:
1. Style - a 'traditional' or 'Victorian' design style is preferred, characterized by
decorative and ornamental forms, with the use of brick, stone and wood as
preferred materials.
2a. Building Height & Form (King Street) - for all new buildings, the preferred
fa<;ade height along King Street shall be 2 storeys. The City may require
articulation of building facades and rooftops.
2b. Building Height & Form (Weber Street, between Scott Street and Cedar Street)-
unless identified as a cultural heritage resource, the removal of the existing single
detached dwellings fronting Weber Street shall be permitted, provided new
buildings are compatible with surrounding low rise development. 3-storey
buildings incorporating sloped or pitched roof lines, such as stacked townhouses,
are encouraged. The City may require articulation of building facades and
rooftops.
2c. Building Height & Form (all other streets) - for all new buildings, the maximum
building height should be 3 storeys. Additional storeys may be permitted, but
only internal to large block developments or adjacent to Primary Arterial Roads,
where additional height can be located away from the street line. Incorporating
sloped or pitched roof lines into new building designs helps to reflect the historic
built form of the District. The City may require articulation of building facades
and rooftops. The retention and conversion of existing single detached dwellings
is encouraged.
8
3. Streetscapes - streets should be designed to maximize the aesthetic value through
planter beds, gardens and street trees. Streetscape designs should incorporate
traditional elements such as ornamental street furniture and decorative light posts.
Intimate settings for outdoor restaurants and seating areas, such as Market
Village, should be retained and enhanced, while encouraging similar settings
throughout the District.
4. Storefronts - decorative and ornamental cornices and trim are encouraged,
provided such detailing accents the store entranceways and window displays.
5. Signage - decorative and artistic fascia signs, projecting signs and awning signs
are preferred. This could include channelized lettering. Signs and lettering
should be externally illuminated rather than backlit, preferably with downward
lighting. Plastic or fiberglass signs are discouraged.
iii) Warehouse District
The Warehouse District is evolving into a dense, contemporary urban setting, with
former factories converting into trendy loft space and new development re-creating
the traditional urban fabric. New development shall be consistent with the following
general design principles:
1. Style - a 'contemporary' Busy Berlin design style is preferred which respects the
form and architecture (early industrial modernism) of the historic factories while
adding a contemporary urban flair. The early industrial modernism is
characterized by rhythmic concrete columns that frame large windows, accented
by brick materials.
2a. Building Height & Form (new development) - for all new development, fa<;ade
heights should range between 3 to 6 storeys. Wide building mass should frame
the street and reflect the traditional perimeter block pattern. The City may require
articulation of building facades and rooftops. Rhythmic columns should frame
large, multi-paned windows.
New buildings should be sensitive to the scale and features of the surrounding
residential streets, particularly where new development interfaces with adjoining
neighbourhoods. Fa<;ade heights directly abutting Linden Avenue, Oak Street,
Michael Street and Breithaupt Street should be limited to 3 storeys. Where
possible, access points, service areas and mechanical equipment should be located
away from adjacent residential areas.
Reduced or additional building height may be considered for lands not abutting
Victoria Street, subject to an approved Design Brief.
9
2b. Building Height & Form (adaptive reuse) - former industrial buildings, such as
the Lang Tannery and Huck Glove Factory, should be adaptively reused while
conserving historic elements of the building architecture. New additions should
accent, rather than replicate, the existing architecture, by using contemporary
design styles.
3. Streetscapes - streets should be designed to soften the District's bold building
edges, by maximizing street trees and incorporating decorative landscaping. The
City may require buildings to be set back from the street line to accommodate
continuous landscaped promenades for sitting and walking.
4. Storefronts - stores should exist between prominent vertical columns, rather than
cover or mask the columns. Large windows with steel accents and articulated
building entrances are encouraged along the ground floor to create a transparent
fa<;ade.
5. Signage - minimal signage is preferred so as to enhance the architectural
columns. Fascia signs should be limited in height and width, and should not mask
structural columns. Creative and contemporary signs are preferred, which utilize
materials that will enhance the District's character, such as steel or metallic signs.
iv) Civic District
The Civic District, also referred to as Mackenzie King Square, was planned in 1965
as a contemporary urban square with architecturally bold buildings situated in a park-
like setting. New development shall be consistent with the following general design
principles:
1. Style - all new development should strive to make bold architectural statements,
situated in a high quality park setting. It is intended that this district look like and
function as one coordinated urban square.
2. Building Height & Form - while bold building forms are encouraged, new
development should be sensitive to the historic scale and features of the
surrounding streets, in particular, where new development interfaces with
adjoining neighbourhoods and historically significant buildings, such as the
Sonneck House and the Governor's House and County Gaol. New buildings
should be surrounded by high quality landscaping which create a variety of
seating areas.
3. Streetscapes - streetscape elements internal to the District, not including those
along Queen Street and Ellen Street, such as light poles and benches, should
celebrate arts and culture. To this extent, outdoor public art should be
incorporated into each development.
10
4. Cultural Heritage
The City shall conserve its cultural heritage in the following ways:
i) Through the conservation of significant cultural heritage resources, to include
individual properties as well as clusters of buildings and/or storefronts having
architectural or historic value or significance. Conservation measures include
designation under the Ontario Heritage Act and the listing of properties on the
Municipal Heritage Register;
ii) Through the designation of heritage conservation districts and the implementation
of heritage conservation district plans;
iii) Through the celebration of the intersection of King Street and Queen Street as
"The Royal Crossroads" - the historical apex of Berlin;
iv) Through the incorporation of industrial artifacts within civic buildings and into
the urban landscape, predominantly in the Warehouse District; and,
v) Through the preservation of the following vistas:
- Gaukel Street from King Street to Victoria Park;
- Ontario Street from Duke Street to Victoria School;
- Queen Street South from Duke Street to St. George Street;
- Queen Street from Ellen Street to King Street; and,
- Frederick Street from Duke Street to Weber Street.
vi) By creating greater public appreciation and understanding of the significance of
our cultural heritage resources through the use and installation of interpretive
signage, plaques, markers, artifacts and walking tours.
5. Public Art, Culture & Multi-Culturalism
The City is committed to leadership in the cultural sector. The design of spaces and
buildings, linked with special events, public art and cultural programming can
celebrate and enhance the cultural experience in each district, while creating vibrant
people activity. The City shall support the growth of cultural experiences Downtown
in the following ways:
i) By fostering the emerging and unique cultural experiences of each Design
District:
- The City Centre District is characterized as the centre of the City's pedestrian
social life, and characterized by community celebrations, counter/pop-culture
and night-time entertainment;
11
- The Market District is characterized as a centre of cultural diversity and ethnic,
inter-cultural experiences;
- The Warehouse District is characterized as a centre of creative spaces and loft
living, as well as a future centre for artistic and technical creativity, including
the future centre of medical education and research; and
- The Civic District is characterized as a centre of visual and performing arts.
ii) Through the development of a public art master plan and streetscape master plans,
to identify potential locations for new public art, preferred themes for each
location, and methods for funding public art, such as a private sector percent-for-
art policy, financial incentives, road reconstruction projects, special design
studies, or bonusing provisions; and,
iii) By supporting live-work developments, such as those which include studio or
office space within a self contained multiple residential unit, through flexible
zoning provisions and consideration of financial incentives.
6. Transportation Planning
i) The City shall encourage a mixture of people friendly streets and car friendly
streets. Street designs should make walking easy and enjoyable, even if it results
in slower vehicular traffic. Closing off streets for pedestrian only traffic may be
considered on a temporary or permanent basis;
ii) The City shall encourage and promote the use of sidewalks for people activity,
such as outdoor retailing, restaurants, performance spaces, etc.;
iii) The City shall support alternative modes of transit, such as rapid transit, bus
transit, cycling and walking, as Downtown's preferred form of transportation. To
accommodate vehicular traffic, the City shall encourage the use of parking
structures, while discouraging new surface parking lots;
iv) The City shall consider accepting cash-in-lieu of required parking in the
Downtown; and,
v) The City shall encourage outdoor events, such as markets and celebrations, to
occur on the street.
12
Strategies for Implementation
The following section identifies key areas of focus to implement the preceding policies.
1. King Street
i) The City shall prepare a streetscape master plan for King Street, to identify the
preferred configuration and design of the public right-of-way;
ii) The City shall prepare urban design guidelines for King Street, to establish
guidelines and standards for new buildings, new storefronts, storefront
modifications, new signs and new outdoor patios;
iii) The City shall conduct a review of all administrative functions pertaining to all
types of permits issued for King Street, including building permits, business
licensing, sign permits and financial incentives, to ensure coordination of all
development activity and adherence to the policies of this section and any
guidelines and standards of the City's Urban Design Manual;
2. Greenscapes
i) The City shall develop engineering standards for accommodating new tree
plantings within the municipal right-of-way for streets identified as greenscapes,
and develop a strategy for implementing new tree plantings;
ii) The City shall develop urban design guidelines and standards pertaining to
landscaping of private property which abut greenscapes.
3. Warehouse District
The City shall develop comprehensive urban design guidelines and standards,
pertaining to all new development within the Warehouse District, to address such
elements as the massing of buildings, architecture, heritage conservation, signage, etc.
4. Frederick-Benton Corridor
In cooperation with the Regional Municipality of Waterloo, the City shall develop a
business case for the long-term reconstruction of the Frederick-Benton Corridor, from
Lancaster Street to Courtland Avenue, for the potential establishment of a grand
central median to accommodate such activities as walking, cycling, special events and
outdoor markets. This concept may provide an opportunity to celebrate our German
and Bavarian heritage, and act as a staging ground for Oktobefest programming.
5. Heritage Conservation
The City shall undertake an evaluation of the Downtown to identify significant
cultural heritage resources worthy of being added to the Municipal Heritage Register,
as well as those worthy of being designated under the Ontario Heritage Act. Such
evaluation shall include the identification of specific heritage attributes which shall be
referenced and guide the review and approval of plans for conservation, adaptive re-
use, new development and public works. This could include the evaluation of the
13
vistas identified in policy 9.4 (iv) to determine the cultural heritage importance of
each vista, and the attributes worthy of conservation.
6. Site Specific Design Briefs
For major redevelopments, the City, in cooperation with land owners and
stakeholders, may develop design briefs specific to individual projects, sites or
buildings.
14