Agenda Item # Page # II II. CHAIR AND MEMBERS -PLANNING COMMIlTEE To MEETING ON MONDAY, APRIL 3,2006 AT 5:OO PM

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1 ~ Agenda Item # Page # II I CHAIR AND MEMBERS -PLANNING COMMIlTEE To MEETING ON MONDAY, APRIL 3,2006 AT 5:OO PM I! 11 I FROM: R. W. PANZER GENERAL MANAGER OF PLANNING AND DEVELOPMENT SUBJECT: OLD EAST HERITAGE CONSERVATION DISTRICT CITY OF LONDON I! II II RECOMMENDATION That, on the recommendation of the General Manager of Planning and Development, based on the application by the City of London, relating to the creation of the Old East Heritage Conservation District: Heritaae Places: A Description of Potential Heritaae Conservation Areas in the City of London March Report to Planning Committee - Information ReDort: ImDlementation of Heritaae Conservation District Studies and Plans August Report to Planning Committee - Potential Heritaae Conservation District Priority List October003 - Report to Planning Committee - Old East Heritaae Conservation District October Report to Planning Committee - The Old East Heritaae Conservation District I BACKGROUND Part V of the Ontario Heritage Act (2005) enables municipal councils to create, by by-law, in consultation with the London Advisory Committee on Heritage, one or more areas of a municipality for designation as heritage conservation districts. Such designation enables the municipality to protect groups of properties that collectively represent a certain aspect of the development of the municipality considered worthy of preservation. It allows municipalities to 1

2 , Ageyd; Item # jage # manage change and development so as to protect and enhance that heritage. Section 13.3 of the City of London Official Plan provides for the designation of heritage conservation districts in London under Part V of the Ontario Heritage Act and gives some detail relating to the process that is to be followed for such designation. Under these policies two areas of London have been designated as heritage conservation districts: East Woodfield (1994) and Bishop Hellmuth (2003). the designation of London s third heritage conservation district - The Old East. These include: English Sfreef Looking Soutli, Early 1900s The 1993 City of London guideline document Heritage Places identified the Lorne Avenue area as one of 14 potential heritage conservation districts. In 1994 East Woodfield was established as London s first heritage conservation district. In 1999 Council adopted a priority list for designating districts, and Lorne Avenue was ranked as eighth on the list. In 2003 the Bishop Hellmuth District was established as London s second heritage conservation district. In September, 2003 following an Old East Village public meeting in June of that year, in which there was overwhelming support for the creation of a heritage conservation district, Council amended the prioritized list to place the Lorne Avenue area (Old East Village) as the third priority, and therefore the next area to be considered for heritage designation. Council s willingness to move the timing of the proposed Old East Heritage Conservation District was partly related to the hope that such designation would complement revitalization initiatives for the adjacent Dundas Street commercial corridor. In October, 2003 a request for proposals (RFP) from consultants to carry out Phase 1 to conduct a study of the Old East Village area was approved by Council with budget support. This RFP was later extended and in March of 2004 a consortium composed of Stantec, Nexus Architects, Mike Baker, and TOURistics was selected to conduct a study to determine the appropriateness of the Old East Village area for designation. From March 2004 through November 2004 the consultants carried out research with respect to the historical background of the district, its architectural characteristics, streetscape, zoning, traffic patterns and planning issues related to the area. This research was supplemented with two well-attended public meetings at Lorne Avenue Public School (both meetings were preceded by public notice announcements and mailings to individual property owners). In their report the consultants concluded that the area, somewhat expanded from what was initially proposed, met the criteria set out in the City s Official Plan for designation as a heritage conservation district. In November, 2004 Council received the Phase 1 Study from the consultants and, with the concurrence of the LACH and Planning Committee, recommended that Phase 2 be conducted, for the purpose of establishing a District Plan and accompanying Guidelines for the proposed District. Budgeting for Phase 2 was provided by Council and the same consulting consortium was retained to prepare the District Plan and Guidelines. This work has proceeded through 2005 and again a public meeting was held in September, 2005 at Lorne Avenue Public School to present area residents with a draft version of the Plan and Guidelines and to solicit further comment. Also, digital copies of these drafts have been placed on-line on the City s web-site with a link to the Old East Village web-site. In November, 2005 the consultants presented their drafts to the LACH for questions and comments. The final Old East Plan and Guidelines were received by Planning Department on February 17, Copies of the proposed Plan and the accompanying Guidelines are included with this report. 2

3 , Ageiqa Item # Fiage # HISTORY OF PROPOSED OLD EAST HERITAGE CONSERVATION DISTRICT The proposed Old East Heritage Conservation District is located in the east-central part of London in the area east of Adelaide Street to the west side of Quebec Street, south of the CPR allowance and north of Dundas Street. (see Schedule "A" Boundary Map) It is near the downtown core and is also in close proximity to the East Woodfield Heritage Conservation District. The Old East area is contained within what historically was known as the English Survey, today bounded by Central and Woodman Avenues and Adelaide and Dundas Streets. The original land owner, Noble English, was granted a 100 acre lot in 1819 to which he later added an additional 100 acres to the east. For almost 50 years most of this property was farmed. In 1856 he subdivided approximately 35 acres between Adelaide and Elizabeth Streets and established the street grid that would be extended in 1872 when the rest of his land was subdivided. Most of the original lots were later subdivided by individual owners. The Old East area was originally subdivided in the 1850s and 1870s in response to the industrial and commercial development in the immediate area. The general old east area is bordered on the north and south by railroad tracks that were once the economic rationale for the industries that supported this neighbourhood. Except for the frontage along the north side of Dundas Street, this entire area was developed as a residential area over a fairly long period, from 1860 to For most of this period, the owners of the homes built in the area were mainly self-employed craftsmen or skilled labourers working for east end industries and the railways. Others were employed by the commercial enterprises on Dundas Street and many had jobs in the city. As a result the full social spectrum of London East's several generations of residents is reflected in the surviving building stock. I Local craftsman caulking window c Lorne Avenue, Early 1900s 944 Dufferin Avenue, 2005 Lorne Avenue Streetscape, 2005 It should be noted that the proposed district is composed almost entirely of the residential community. The major commercial areas on Dundas and Adelaide Streets are not included in the proposed heritage conservation district. 3

4 , Ageyd; Item # plags # 1 LAND USE DESIGNATIONS D. MENARDICNELSON The entire area with the defined study boundary is designated as Low Density Residential in the City of London Official Plan. This permits primarily single detached, duplex and semi-detached dwellings. Other uses, such as schools, community facilities are also permitted in the Low Density designation as secondary permitted uses. Section 10 of the Ofticial Plan contains a policy pertaining to an area along Central Avenue permitting a limited range of commercial uses which have minimal impact on surrounding uses. Within the proposed area are the following zones: Residential (R3-2) Zone for the vast majority of properties within the area. - Office Conversion (OC2/R3-1) (OC4/R3-1) (OC5/R3-1) Zones in the southwest corner of the area. - Neighbourhood Facility (NF, NFI) Zones at two locations - Lorne Avenue School, and the W.O. Carson Library. Convenience Commercial (CC) Zone at the corner of Princess and Ontario Streets. - Light IndlJStrial ILI (8))... along _ Dortions. of Central Avenue along - with the Residential (R3-2) (RSC3 (8)) zones. - Office Residential (OR * D250 H46 BDC (2)) in the southwest corner of the area. - Business District Commercial (BDC (19) * D250 H46) in the southwest comer of the area. The creation of the proposed heritage conservation district will not require zoning changes at this time. I),I RECOMMENDATIONS I1 Designation of the subject area as a Heritage Conservation District is recommended for the following reasons: 1. The area meets the criteria for designation as a Heritage Conservation District outlined in the Official Plan. This is fully presented in the Heritage Conservation District Study. The heritage character of the area is exemplified in the following key areas: A large number of properties were constructed during a key area of London s development history. Few other communities can exhibit the same continuity of architecture over such a long period of time. The study area is like a time lapse photograph of urban development from 1860 to 1930; The housing stock and its builders and architects had strong linkages to the local industrial and employment economy of Old East. Taken together with the remaining industrial and commercial structures adjacent to it, the entire area of East London is a living archive of the historical development not only of London but of urban Ontario; Numerous buildings contain unique architectural and construction features that act as trademarks for specific builders and contractors in the area; The presence of a large number of properties which are reasonably consistent in character and quality, with recognizable architectural features, building materials and construction details; A number of significantly finer examples of heritage buildings act as landmarks within the area and are similar in character to the surrounding buildings. 2. Strong support for the creation of this heritage conservation district has been shown by area residents, the ongoing support of the Old East Village Community Association, and the Old East Business Improvement Agency. 3. The London Advisory Committee on Heritage has endorsed the creation of this heritage conservation district. 4

5 D. MENARD1C.NELSON 1 PROPOSED OFFICIAL PLAN AMENDMENTS The Official Plan will be amended (as attached) to identify the Old East Heritage Conservation District and add a character statement and Policies for the District. 2. Under Section Heritage Conservation Districts - the plan will be amended to identify the boundaries of the Old East Heritage Conservation District (attached) 3. Under Section Heritage Conservation Districts - the Plan will be amended to add a Character Statement about the District and Policies that will guide development in the Distrid.(attached) It is expected that the creation of the Old East Heritage Conservation District will provide the following benefits: Encourage the retention and conservation of historic buildings and landscapes within a specific area of the city; Provide for the guidance of new design work in the heritage district so that it is compatible with the old; Allow for the enhancement of the historic character and visual appeal of the historic district; Allow for the managing of the continuous health of the historic district as a residential neighbourhood; Maintain and enhance the prevailing "sense of place" of the historic district; Foster community support- to conserve the historic and landscape character of the historic district; Assist the city in identifying and prioritizing capital expenditure in the historic district; Maintain, and possibly, enhance property values by providing stability to a heritage Dofferin Avenue Streetscape, 2005 March 14,2006 IDM. CN 5

6 Agenda m-q Item # Page # IDM, CN Appendix 1 - Designating By-Law Schedule "A"-Old East HCD Boundary Map Appendix 2 - Official Plan Amendment By-Law, Sections Appendix 3 - Official Plan Amendment By-Law, Section Appendix 4 - Proposed Official Plan Amendment Figure Official Plan Amendment Old East HCD Boundary Map Y\Shared\POLICW-IERITAGnPC reports\oehcd PC designation, OP report, April 3,2006.doc 6

7 APPENDIX 1 DESIGNATING BY-LAW OLD EAST HERITAGE CONSERVATION DISTRICT 7

8 , Ageid1 Item #[ P # D. MENARDICNELSON i Bill No. (to be inserted by Clerk s Office) By-law No. A by-law to designate a heritage conservation district known as Old East. WHEREAS pursuant to subsection 41 (1) of The Ontario Heritaae Act, R.S.O., 1990, c 0.18, the Council of a municipality may by by-law designate the municipality or any defined area thereof as a heritage conservation district; AND WHEREAS the Official Plan of the City of London contains provisions relating to the establishment of heritage conservation districts; AND WHEREAS it is intended to designate the area defined by the by-law as a heritage conservation district; The Municipal Council of the Corporation of the City of Loridon enacts as follows: 1. The area shown on Schedule A hereto annexed and forming part of this by-law is hereby designated as a Heritage Conservation District. 2. This By-law shall come into force and be deemed to come into force in accordance with section 41 of the Ontario Heritage Act, R.S.O. 1990, either on the day following the last day of the prescribed appeal period or as otherwise provided by subsection 41(10) of the Act. Passed in Open Council on April 10,2006 Anne Marie DeCicco Mayor Kevin Bain City Clerk First Reading -April IO, 2006 Second Reading -April 10,2006 Third Reading -April 30,2006 8

9 m-4 Agenda Item # Page # uu SCHEDULE A OLD EAST HERITAGE CONSERVATION DISTRICT BOUNDARY MAP 9

10 D. MENARDICNELSON SCHEDULE A OLD EAST CONSERVATION DISTRICT BOUNDARY MAP 10

11 APPENDIX 2 OFFICIAL PLAN AMENDMENT BY-LAW SECTIONS 13.3 AND

12 D. MENARD/C.NELSON Bill NO. (number to be inserted by Clerk's of-) 2006 By-law No. A by-law to amend Section 13.3 of the Official Plan of the City of London to identify the Old East Heritage Conservation District arid add a Character Statement and Policies for the Old East Heritage Conservation District to Section of the Official Plan. WHEREAS pursuant to subsection 41 (1) of The Ontario Heritaae Act. R.S.O., 1990, c 0.18, the Council of a municipality may by by-law designate the municipality or any defined area thereof as a heritage conservation district; AND WHEREAS the Official Plan of the City of London contains provisions relating to the establishment of heritage conservation districts; AND WHEREAS it is intended to designate the area defined by the by-law as a heritage conservation district; follows: The Municipal Council of The Corporation of the City of London enacts as 1. Amendment No. (to be inserted by Clerk's om-) to the Official Plan for the City of London Planning Area , as contained in the text attached hereto and forming part of this by-law, is adopted. 2. This by-law shall come into effect in accordance with subsection 17(38) of the Planning Act, R.S.O. 1990, c.p.13. PASSED in Open Council on April 10,2006 Anne Marie DeCicco Mayor Kevin Bain City Clerk First Reading - April 10,2006 Second Reading -April 10,2006 Third Reading - April 10,

13 Agenda Item # Page # APPENDIX 3 OFFICIAL PLAN AMENDMENT BY-LAW SECTION

14 \ Bill NO. (to be inselied by Cie~s Office) 2006 By-law No. A by-law to amend Section of the Official Plan of the City of London to include the Old East Heritage Conservation and District Plan and Guidelines, as guideline documents to guide property owners and development activity within the boundaries of the District. follows: The Municipal Council of The Corporation of the City of London enacts as 1. Amendment No. (to be inserted by Clerk's office) to the Official Plan for the City of London Planning Area , as contained in the text attached hereto and forming part of this by-law, is adopted. 2. This by-law shall come into effect in accordance with subsection 17(38) of the Planning Act, R.S.O. 1990, c.p. 13. PASSED in Open Council on April IO, 2006 Anne Marie DeCicco Mayor Kevin Bain City Clerk First Reading -April 10,2006 Second Reading -April IO, 2006 Third Reading -April 10,

15 -- Agenda hem # Page #l APPENDIX 4 OFFICIAL PLAN AMENDMENT 15

16 Agenda Item # Page # )I AMENDMENT NO. To the OFFICIAL PLAN FOR THE CITY OF LONDON A PURPOSE OF THIS AMENDMENT The purpose of this amendment is to recognize and add the Old East Heritage Conservation District to Sections 13.3 and 13.6 of the Official Plan for the City of London. B. LOCATION OF THIS AMENDMENT This amendment applies to lands located within the Old East Heritage Conservation District which is shown in the attached Figure These lands are generally, but not entirely bounded by Adelaide Street, Central Avenue, Quebec Street and Dundas Street. C. BASIS OF THIS AMENDMENT Council may designate areas of the City as Heritage Conservation Districts, pursuant to the provisions of The Ontario Heritaae Act. This provides for the protection and enhancement of groups of properties that collectively represent a certain aspect of the development of the municipality considered worthy of preservation. D. THE AMENDMENT The Official Plan for the City of London is hereby amended as follows: 1. Section to the Official Plan is amended by adding the phrase 13-2 and 13-3 after the phrase Figure 13 -I, and before the words Council shall be guided Chapter 13 of the Official Plan for the City of London is amended by adding the attached Figure 13-3 Old East Heritage Conservation District after Figure Section 13.6 of the Official Plan for the City of London is amended by adding the following subsection: Old East i) The Old East Heritage Conservation District, identified on Figure 13-3, encompasses the area within what was historically known as the English Survey, land originally owned by settler Noble English. This area was part of London Township until 1874 when London East began its short life as an incorporated municipality lasting until 1885 when it was amalgamated with the city. Sparked by the development of the early refinery industry and the establishment of the railways and industries related to it, London East became the economic engine for the city of London. From London grew by an average of 1000 people per year. The Old East part of London absorbed many of the immigrants who not only found jobs nearby, but also in the factories, retail shops and wholesale enterprises downtown. Many workers employed in the plants and factories nearby lived in the Old East which evolved into a solid, prosperous community of wage-earners that supported the three block commercial area on Dundas Street. Except for the frontage along Dundas Street, this entire area was developed as a residential area over a fairly long period, from 1860 to Today, 16

17 Agenda b-1 Item # Page # D. MENARDIC.NELSON structures can be found in the area that reflect many different points in its development. A large percentage of the structures in the district not only have survived from the time they were built but have sum ved, for the most part, in a good state of preservation. Taken together with the remaining industrial and commercial structures adjacent to it, the entire area of London East is a living archive of the historical development not only of London but of urban Southwestern Ontario. ii) It is the intent of Council to maintain, protect and conserve the Old East Heritage Conservation District. Council shall havo regard to Official Plan policies as they apply to heritage conservation districts in Section 13.4 and, in accordance with Official Plan policies and the Old East Heritage Conservation District Plan and Conservation Guidelines. 4. Section (ii) of the Official Plan for the City of London is amended by adding the following subsection: q) Old East Heritage Conservation District Plan and Guidelines. 17

18 FIGURE 13-3 OLD EAST HERITAGE CONSERVATION DISTRICT BOUNDARY MAP FOR OFFICIAL PLAN 18

19 FIGURE 133 OLD EAST HERITAGECONSERVATION DISTRICT BOUNDARY MAP 19