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HomeMy WebLinkAboutPDS-018-22Staff Report If this information is required in an alternate accessible format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. Report To: Planning and Development Committee Date of Meeting: March 28, 2022 Report Number: PDS-018-22 Submitted By: Reviewed By: File Number: Report Subject: Ryan Windle, Director of Planning and Development Services Mary- Anne Dempster, CAO Resolution#: By-law Number: Addition of Properties to Municipal Heritage Register Recommendations: 1.That Report PDS-018-22 and any related communication items, be received; 2.That 1 Veterans Avenue, Bowmanville be added to the Municipal Register; 3.That 2 Veterans Avenue, Bowmanville be added to the Municipal Register; 4.That 3 Veterans Avenue, Bowmanville be added to the Municipal Register; 5.That 4 Veterans Avenue, Bowmanville be added to the Municipal Register; 6.That 5 Veterans Avenue, Bowmanville be added to the Municipal Register; 7.That 6 Veterans Avenue, Bowmanville be added to the Municipal Register; 8.That 7 Veterans Avenue, Bowmanville be added to the Municipal Register; 9.That 8 Veterans Avenue, Bowmanville be added to the Municipal Register; 10. That 9 Veterans Avenue, Bowmanville be added to the Municipal Register; 11. That 10 Veterans Avenue, Bowmanville be added to the Municipal Register; 12. That 11 Veterans Avenue, Bowmanville be added to the Municipal Register; 13. That 12 Veterans Avenue, Bowmanville be added to the Municipal Register; 14. That 36 Second Street, Bowmanville be added to the Municipal Register; 15. That 38 Second Street, Bowmanville be added to the Municipal Register; Municipality of Clarington Page 2 Report PDS-018-22 16. That 49 Lambs Lane, Bowmanville be added to the Municipal Register; 17. That 51 Lambs Lane, Bowmanville be added to the Municipal Register; 18. That 53 Lambs Lane, Bowmanville be added to the Municipal Register; 19. That 55 Lambs Lane, Bowmanville be added to the Municipal Register; and 20. That all interested parties listed in Report PDS-018-22 and any delegations be advised of Council’s decision. Municipality of Clarington Page 3 Report PDS-018-22 Report Overview The Clarington Heritage Committee and staff are recommending the addition of eighteen Bowmanville properties to the Municipal Register:  1 through 12 Veterans Avenue, inclusive  36 and 38 Second Street  49, 51, 53, and 55 Lambs Lane The Municipal Register is a listing of the cultural heritage resources in Clarington that warrant historical protection. The addition of these properties to the Municipal Register (i) supports the promotion of Clarington’s local heritage, and (ii) protects the buildings from being demolished without proper evaluation of their cultural heritage significance by a ffording the Municipality additional time (up to 60 days) to review a demolition permit, should such an application be received. 1. Background Ontario Heritage Act 1.1 Section 27 of the Ontario Heritage Act requires every municipality to maintain a Municipal Register that lists all heritage properties formally designated by by-law. In 2009, Council expanded Clarington’s Municipal Register to include “non-designated” properties. Including a non-designated property on the Municipal Register is a formal indication that a property is believed to have cultural heritage value or interest and warrants further evaluation to determine appropriate conservation measures. The decision to include a non-designated property on a Municipal Register rests with Council upon consultation with the municipal heritage committee. 1.2 Listing a property on the Municipal Register does not provide any legal protection to the property. Only formal designation under Section 29 of the Ontario Heritage Act can do so. The primary benefit of including a non-designated property on the Municipal Register is to provide the Municipality with additional time (up to 60 days) to review a request for a demolition permit, rather than the shorter timelines outlined in the Building Code Act. 1.3 The protection afforded to non-designated properties on the Municipal Register allows time for a more thorough evaluation of the property and time to provide Council with a recommendation on demolition or moving forward with designation of the property. More specifically, the 60 days allows sufficient time to evaluate the building(s), protection options, mitigation measures, alternate development proposals, etc. a nd to make a recommendation to Council on the cultural heritage value of a property. Municipality of Clarington Page 4 Report PDS-018-22 1.4 Adding a property to the Municipal Register also allows the Municipality to request a demolition permit applicant undertake a study or research to demonstrate that the property does not have significant cultural heritage value, or to determine appropriate mitigation measures or alternative recognition options that can be implemented. 1.5 On July 1, 2021, the amendments to the Ontario Heritage Act as part of the More Homes, More Choice Act, 2019 (Bill 108) came into effect along with the associated Ontario Regulation 385/21. The amendments include a more formal process to add non- designated properties to the Municipal Register under s. 27, including prescribed notice requirements and an opportunity for Council to consider input/objections. 1.6 Specifically, the Municipality is now required to notify a property owner within 30 days of adding their non-designated property to the Municipal Register. The notice will include information about the owner’s right to object to the addition of their property to the Municipal Register. Where an objection is received, within 30 days Council must provide the property owner with a decision as to whether the property should remain on the Register. It is noted that there is no time limit associated with when a property owner could object to their property being listed on the Municipal Register. 1.7 As outlined in Section 4 below, the Municipality’s current practices include providing notification to property owners when their property is being considered for addition to the Municipal Register. The current process has been amended to incorporate the notice of Council’s decision, as required. Properties on Clarington’s Municipal Register 1.8 There are currently 116 properties on Clarington’s Municipal Register comprised of 78 designated properties and 38 non-designated properties, as well as 1 Heritage Conservation District (Beech Avenue). 1.9 To date, many of non-designated properties added to the Municipal Register have been under threat of demolition. Examples include the buildings at Camp 30 (now designated), properties affected by the 407 extension (now demolished), and properties that are within areas identified for intensification and/or redevelopment. Clarington’s Cultural Heritage Resources List 1.10 In accordance with the Clarington Official Plan, the Planning and Development Services Department maintains a Cultural Heritage Resources List (CHRL) with advice and assistance from the Clarington Heritage Committee (CHC). The CHRL is an inventory of properties that the Municipality has identified as having cultural heritage value or interest. Properties on the list are categorized as Primary, Secondary and Heritage Merit. The properties identified on the CHRL are subject to the policies of Section 8 (Celebrating our Cultural Heritage) of the Official Plan. However, the properties are not Municipality of Clarington Page 5 Report PDS-018-22 formally recognized under the Ontario Heritage Act unless they are added to the Municipal Register either as a non-designated property or as a property designated by by-law. 1.11 The Clarington Heritage Committee (CHC) has established building evaluation criteria with the intention of reviewing properties on the CHRL to determine properties that should be formally recognized under the Ontario Heritage Act. A sub-committee of the CHC reviews properties from the public right-of-way using the evaluation criteria and presents their recommendations for each property to the CHC. 1.12 In September 2020, the CHC reviewed the following eighteen properties and has recommended adding the group of properties to the Municipal Register:  1 through 12 Veterans Avenue, inclusive;  36 and 38 Second Street; and  49, 51, 53, and 55 Lambs Lane. 1.13 The location of each of the properties is identified in Figure 1. A description of the properties based upon the CHC’s evaluation can be found in Attachment 1 of this report. 2. Provincial and Regional Policy Provincial Policy Statement (PPS), 2020 2.1 The PPS 2020 provides that economic prosperity should be supported by encouraging a sense of place fostered by well-designed built form, cultural planning and conserving features that help define character. More specifically, the PPS 2020 directs that significant built heritage resources shall be conserved. Growth Plan, 2019 2.2 The Growth Plan, 2019 directs that cultural heritage resources will be conserved and promoted in order to foster a sense of place for the social, cultural, and economic benefit of communities. Durham Region Official Plan 2.3 The Regional Official Plan encourages the conservation, protection and/or enhancement of Durham’s built and cultural heritage resources. Municipality of Clarington Page 6 Report PDS-018-22 Figure 1: Properties Recommended to be Added to the Municipal Register Municipality of Clarington Page 7 Report PDS-018-22 3. Clarington’s Policy and Regulations 3.1 The Clarington Official Plan provides that when a cultural heritage resource is designated under the Ontario Heritage Act or is recognized on the CHRL, the Municipality shall discourage the demolition or the inappropriate alteration of a cultural heritage resource. Whenever possible, built heritage resources should be retained for the original use and in their original location. Where the original uses cannot be maintained, the adaptive reuse of built heritage resources will be supported. If no other alternative exists for maintaining structures in their original location, consideration may be given to the relocation of the structure. Should a heritage resource be demolished, the dismantling, salvage and reuse of materials is encouraged. 3.2 All eighteen properties are designated Urban Residential by the Clarington Official Plan, 2018 (consolidation). The primary use of land in the Urban Residential designation shall be for housing purposes, however the designation also provides for other small-scale uses that are supportive of and compatible with residential uses. 3.3 All of the properties are located within the area that is subject to the Neighbourhood Character Overlay under subsection 12.2.1 of Zoning By-law 84-63. The Neighbourhood Character Overlay includes zone standards for lot coverage, height, and landscaped open space, for example, that better reflects the built form and character of Bowmanville’s older neighbourhoods. 4. Public Notice 4.1 While there is no requirement under the Ontario Heritage Act to provide notification prior to the addition of a property to the Municipal Register as a non-designated property, it has been Clarington’s practice to do so. 4.2 On March 11, 2022, Planning staff sent a letter to the owners of the 18 properties proposed to be added to the Municipal Register. The letter informed property owners that the CHC believed their home to have cultural heritage value or interest . A Resident Information Sheet explaining the Municipal Register, and what having a home on the Registry means was provided (Attachment 2). The letter also advised that a staff report would be presented to the Planning & Development Committee recommending the addition of the subject properties to the Municipal Register. Owners were invited to contact Planning and Development Services staff to discuss the CHC’s evaluation and recommendation. 4.3 As of the time of writing this report, no correspondence relating to the proposed addition of the subject properties to the Municipal Register has been received. Municipality of Clarington Page 8 Report PDS-018-22 4.4 In accordance with the changes to the Ontario Heritage Act discussed in Section 1 of this report, notice of Council’s decision will be sent to property owners within 30 days. The notice will include prescribed information relating to the cultural heritage value or interest of the properties and the property owner’s opportunity to object. 5. Concurrence Not Applicable. 6. Conclusion 6.1 Cultural heritage resources contribute significantly to Clarington’s community fabric. Proactively adding properties to the Municipal Register (i) allows the Municipality 60 days to evaluate the property in more detail and explore conservation options prior to the issuance of a demolition permit (ii) recognizes the property’s cultural value or interest, and (iii) illustrates the community’s appreciation for its local culture and heritage. 6.2 Staff and the Clarington Heritage Committee respectfully recommend that the following eighteen properties in Bowmanville be added to the Municipal Register: 1 through 12 Veterans Avenue, inclusive, 36 Second Street, 38 Second Street, 49 Lambs Lane, 51 Lambs Lane, 53 Lambs Lane, and 55 Lambs Lane. Staff Contact: Sarah Allin, Planner, 905-623-3379 x 2419 or sallin@clarington.net. Attachments: Attachment 1 – Cultural Heritage Description Attachment 2 – Municipal Register Information Sheet Interested Parties: List of Interested Parties available from Department. Attachment 1 to Report PDS-018-22 Victory Housing 1 through 12 Veterans Avenue, 36 and 38 Second Street, 49, 51, 53, and 55 Lambs Lane Recommended for addition to the Municipal Register in accordance with Clarington Heritage Committee Motion 20.31, dated September 15, 2020. The eighteen properties identified in Figure 1, below are part of the Victory Housing initiative undertaken by the former Town of Bowmanville. The neighbourhood is located along the north and south sides of Veterans Avenue, as well as the north side of Second Street, and the east side of Lambs Lane in Bowmanville. Construction of the dwellings took place between 1946 and 1947 materials from the barracks and dormitories at the nearby World War II Prisoner of War Camp 30, located at the northwest corner of Concession Street E. and Lambs Road, Bowmanville. Figure 1: Aerial Photo of Subject Properties Architectural The Veterans Avenue and area subdivision is among Clarington’s best examples of a Victory housing neighbourhood. The design of the homes is in keeping with the typical characteristics of Victory housing, being single detached, one storey homes with tidy floorplans and finishes. Characteristics include steep gable roofs without dormers, shallow eaves, clapboard siding, and chimneys located on the exterior wall. The dwellings generally have steps up to a central front door, some of which were originally built with covered or enclosed porches. Windows are often multi-paned and located on either side of the front door, and on one side of each dwelling. The original interior floorplan typically included a kitchen and dining area, and living room at the front of the dwelling, and two bedrooms and a bathroom at the back. The relatively large lot size and the location of the dwelling at the front of the lot, close to the road, allowed for gardens in the back that could be used for growing food. While there have been alterations and rear additions to several of the homes, the front of the dwellings and the overall character of the subject Veterans Avenue neighbourhood (as outlined in Figure 1) retains much of its original elements. Historical and Contextual The Victory homes along Veterans Avenue, Second Street, and Lambs Lane are a fine representation of the type of tidy subdivisions that developed across Canada as a result of the Veterans Land Act legislation to provide housing to returning World War II veterans. However, the properties also hold cultural heritage value or interest for the connection to the former World War II Camp 30/Boys Training School property. In the 1920s, John H. H. Jury donated his farm on Concession Street to the Province for a Boys Training School. The Training School had a campus equipped with modern classroom space, dormitories, and a gymnasium. In 1941, a Prisoner of War Camp was required for German officers and the Training School was appropriated by the Federal government and converted to Camp 30 for the duration of the War. Throughout the War, additional wooden buildings were added for dormitories to house Prisoners of War. Following the War, the Veterans Land Act provided municipalities the authority to develop their own housing programs. Bowmanville Town Council of the time, led by Mayor J. C. Morris, initiated a program to build homes for returning veterans. The initiative coincided with Camp 30 being declared surplus to the Federal government’s needs and reverting back to the Province. The Town of Bowmanville negotiated the purchase of all the buildings. The Toronto Trust Corporation was contracted to methodically dismantle the buildings in sections and relocate the materials to be used in the construction of the homes and sold to returning veterans. Eighteen homes were constructed in the neighbourhood of Lambs Lane and Second Street on a parcel of land that had formed part of the Jury estate. The salvaged sections of the Camp 30 buildings were brought to the site and assembled on top of pre-finished concrete foundations. The homes fronted neatly onto a new road with municipal services, now known as Veterans Avenue. The cost of the infrastructure was offset by the sale of salvaged Camp 30 materials not required for the Victory housing project. The Victory home typology in the Veterans Avenue neighbourhood is known within the community, contributes to the character of the area, and acts as a physical connection to the World War II era and Bowmanville’s Camp 30. South Side Veterans Avenue 1 Veterans Avenue 3 Veterans Avenue 5 Veterans Avenue 7 Veterans Avenue 9 Veterans Avenue 11 Veterans Avenue North Side of Veterans Avenue 2 Veterans Avenue 4 Veterans Avenue 6 Veterans Avenue 8 Veterans Avenue 10 Veterans Avenue 12 Veterans Avenue Veterans Avenue Looking East 36 Second Street 38 Second Street 49 Lambs Lane 51 Lambs Lane 53 Lambs Lane 55 Lambs Lane (Photo Credits: Google) Municipal Register of Properties of Cultural Heritage Value or Interest: Resident Info Sheet What is the Municipal Register? The Ontario Heritage Act (OHA) requires the municipality to maintain a formal register of properties that have cultural heritage value or interest. It is a list of properties that Council considers to be important to the community for any of the followin g reasons: •Due to the property’s distinctive architectural or design value •Because the property is associated with an important person, event or activity that is significant to the community’s heritage •The property is historically linked to its surroundings or is a landmark What types of properties are included on the register? The register includes a variety of properties with heritage value, including: • Properties that are designated by by-law under the OHA (either individually or as part of a Conservation District) •Properties that are not designated by by-law under the OHA but Council deems to have cultural heritage value or interest What does it mean if my property is on the Register? Non-designated properties on the register cannot be demolished unless the owners give Council at least 60 days’ notice in writing Listing a property on the register does not provide any legal protection to the properties on it (it must also be designated by by-law in order to have legal protection) Can alterations or additions be done to properties on the register? Yes, for non-designated properties. Any alterations or additions would follow the same process as for any property Can I sell my property without notifying the municipality if it’s listed in the register? Yes How does a property get to be listed on the register? The Clarington Heritage Committee (CHC) researches, evaluates and scores the suitability of a property for inclusion on the register using a standardized assessment template Planning staff, in consultation with the CHC, will forward a recommendation to Council to add suitable properties to the register Council will make decision at a public meeting The property owner will be notified of the meeting and can choose to address Council if desired