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HomeMy WebLinkAboutPSD-030-18Clarftwn Planning Services 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: April 3, 2018 Report Number: PSD -030-18 Resolution: PD -061-18 File Number: PLN 34.16.21, 34.5.4.42, 34.5.4.57 By-law Number: Report Subject: Recommendation to add 3 properties to the Municipal Register Recommendations: 1. That Report PSD -030-18 be received; 2. That 11 Mabel Bruce Way, Bowmanville be added to the Municipal Register; 3. That 3347 Liberty Street North, Bowmanville be added to the Municipal Register; 4. That 45 Raynes Avenue, Bowmanville be added to the Municipal Register; and 5. That all interested parties listed in Report PSD -030-18 and any delegations be advised of Council's decision. Municipality of Clarington Report PSD -030-18 Report Overview Page 2 Staff and the Clarington Heritage Committee are recommending the addition of three Bowmanville properties to the Municipal Register: 11 Mabel Bruce Way (the former Nurses Residence on the grounds of the Bowmanville Hospital), 3347 Liberty Street North and 45 Raynes Avenue (the former Goodyear site). All three properties are included on the Municipal Cultural Heritage Resource Inventory. The addition of the properties to the Municipal Register will provide additional protection for the buildings and promote Clarington's local heritage. The Municipal Register is a listing of the cultural heritage resources of the Municipality including designated buildings and buildings where further consideration is warranted. By including the buildings on the Municipal Register, the Municipality has ample time to evaluate whether a demolition permit should be issued when an application is received. 1. Ontario Heritage Act 1.1. Every municipality in Ontario, under Section 27 of the Ontario Heritage Act, is required to maintain a Municipal Register that lists all formally designated heritage properties. In 2009 Council expanded Clarington's Municipal Register to include "non -designated" properties that it believes to be of cultural heritage value or interest. The decision to include a "non -designated" property rests with municipal council upon consultation with its municipal heritage committee. 1.2. Listing a property on the Municipal Register is a formal indication that a property has cultural heritage value. Listing a property does not provide any legal protection to the property as only the formal designation under Section 29 of the Ontario Heritage Act can do so. Rather, the primary benefit of including a property on the Municipal Register is to provide the Municipality with up to 60 days to review a request for a demolition permit rather than the shorter timeline outlined in the Building Code Act. 1.3. This increased time allows 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. The 60 days allows sufficient time to evaluate the building condition, protection options, mitigative measures, alternate development proposals, etc. and make a recommendation to Council on the cultural value of a property. 1.4. Adding the property to the Municipal Register also allows the Municipality to request a demolition permit applicant undertake a study or research to show that the property does not have significant heritage value, that mitigation measures or alternative recognition can be implemented. Municipality of Clarington Resort PSD -030-18 Paae 3 2. Properties on Clarington's Municipal Register 2.1 The Municipal Register can be used to identify properties with cultural value and interest and to help educate the community and future owners, increasing transparency about the property's cultural value. 2.2 To date, the majority of non -designated properties that have been added to the municipal register have been under threat of demolition. Examples are the buildings at Camp 30 (now designated) and properties affected by the 407 extension (now demolished). 2.3 The Clarington Heritage Committee set up a sub -committee and established a building evaluation criteria with the intention of reviewing properties on the cultural heritage resources list/inventory beginning with the primary heritage resource properties in the urban areas. The Heritage Committee members review properties from the public right of way using the evaluation criteria and make recommendations on properties to be included on the Municipal Register. 2.4 The Heritage Committee reviewed the three properties (the Nurses Residence at 11 Mabel Bruce Way, Bowmanville; 3347 Liberty Street North, Bowmanville; and the Goodyear site at 45 Raynes Avenue, Bowmanville) and recommend adding each property to the Municipal Register. A description of the properties can be found in Attachments 1, 2 and 3 of this report. 3. Provincial Policy Provincial Policy Statement (PPS 2014) 3.1 The PPS 2014 provides that long-term economic prosperity should be supported by encouraging a sense of place by promoting well-designed built form and cultural planning and conserving features that help define character including built heritage resources. Furthermore, significant built heritage resources shall be conserved. 3.2 "Conserved" is defined as the identification, protection, management and use of built heritage resources in a manner that ensures their cultural heritage value or interest is retained under the Ontario Heritage Act. This may be achieved by the implementation of recommendations set out in a conservation plan, archaeological assessment and/or heritage impact assessment. Mitigative measures and/or alternative development approaches can be included in these plans and assessments. The Provincial Growth Plan (2017) 3.3 The Growth Plan 2017 states that cultural heritage resources will be conserved in order to foster a sense of place and benefit communities. Municipality of Clarington Resort PSD -030-18 4. Official Plans Durham Regional Official Plan Paae 4 4.1 The Regional Official Plan provides that the conservation, protection and/or enhancement of Durham's built and cultural heritage resources is encouraged. Clarington Official Plan 4.2 The Clarington Official Plan provides that when a cultural heritage resource is designated under the Ontario Heritage Act or is recognized on the cultural heritage resources list, 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. 4.3 45 Raynes Avenue is designated as a Special Study Area in the Official Plan, the Goodyear Redevelopment Area. The Official Plan recognizes the redevelopment opportunity of this site in close proximity to historic downtown Bowmanville. The Official Plan requires that a comprehensive redevelopment plan be created and integrated into the Bowmanville East Town Centre Secondary Plan. One of the considerations to be explored through the creation of the redevelopment plan is the potential for adaptive reuse of the existing buildings on the site. A review of the Bowmanville East Town Centre Secondary Plan is anticipated to commence in 2018 and will include an evaluation of the heritage resources over the entire plan area, including Bowmanville's historic downtown, the former Goodyear site and the former Nurses residence at 11 Mabel Bruce Way on the Lakeridge Health Property. 4.4 3347 Liberty Street North is within the Soper Creek Secondary Plan area. The terms of reference will include a heritage resources study for the entire area. 4.5 The Official Plan provides that development proposed on lands listed on the Municipal Register or on the Cultural Heritage Resource Inventory may be subject to a Heritage Impact Assessment (HIA) which would identify the heritage attributes of the resource and consider an overall conservation approach. Given that there are multiple buildings on the Goodyear site, an HIA has been requested from the property owner which will help to distinguish those buildings on the property that contain heritage value from those that may be appropriate for removal. The inclusion of this property on the Municipal Registry will help to prevent the demolition of any building on the site before a thorough understanding of the site's heritage value is gained through the HIA. Municipality of Clarington Resort PSD -030-18 5. Public Notice Paae 5 5.1 Under the Ontario Heritage Act there is no notification requirements before Council adds a property to the Municipal Register as a listed property. However, Staff, the Heritage Committee and previous Councils believed notification to property owners was important. 5.2 Lakeridge Health Corporation, the owner of 11 Mabel Bruce Way, were notified of the intention to add the property to the Municipal Register verbally on January 29, 2018 and staff met with owner representatives in February 2018 and have communicated with them since. They will be completing an HIA for the property in the future. 5.3 Staff met with the owner of 3447 Liberty Street North on March 5, 2018 to discuss the implications of adding the property to the Municipal Register. Staff also discussed how the heritage resources will be addressed as part of a background study for the Secondary Plan. 5.4 Staff met with representatives of Contitech Canada Inc. the owners of 45 Raynes Avenue, most recently in January 2018. As part of the discussion a HIA was requested. Staff were informed in March of 2018 that it is the owner's intention to complete an HIA. 5.5 Written notice was sent to all property owners indicating a staff report would be going to Planning and Development Committee recommending adding the respective properties to the Municipal Register. 6. Concurrence Not Applicable. 7. Conclusion The recommendations contained in this report conform to the Strategic Plan. Municipality of Clarington Report PSD -030-18 Page 6 Submitted by: David Crome, MCIP, RPP, Director of Planning Services z 1� Reviewed by: Andrew C. Allison, B. Comm, LL.B CAO Staff Contact: David Addington, Planner II, 905-623-3379 ext. 2419 or daddington@clarington.net DC/DA/nl;tg Attachments: Attachment 1 - 11 Mabel Bruce Way (the Nurses Residence) Attachment 2 - 3347 Liberty Street North Attachment 3 - 45 Raynes Avenue (Goodyear) List of interested parties to be notified of Council's decision is on file in the Planning Services Department. I:\ADepartment\LDO NEW FILING SYSTEM\PLN Planning Files\PLN 34 Heritage (All Files)\PLN 34.16.21 11 Mabel Bruce Way (Nurses Residence)\Staff Report\PSD-030-18 Report To Add 3 Properties To Registry.Docx Attachment 1 to Report PSD -030-18 11 Mabel Bruce Way (the Nurses Residence) The house at 11 Mabel Bruce Way, known as the Nurses Residence, was constructed by contractor T.E. Flaxman in 1926 and is located on the same property as the Bowmanville Hospital to the east of the existing hospital building. The Nurses Residence is a good example of a large brick Tudor Revival house. Its prominent architectural features include a recessed front door within a tudor arch of stone moulding, overhanging eaves that are adorned with dentils, the high chimney with finely detailed brickwork, the pitched side gable roof and the cross gable. A prominent Tudor feature is the semi -hexagonal bay on the ground floor with its ten narrow multi -paned casement windows. The Bowmanville Hospital property was originally a large private estate called South Park and was donated to become a hospital by J.W. Alexander, President of the Dominion Organ and Piano Company. The hospital was opened in 1913 and its first superintendent, Miss Mabel Bruce, established a training school for nurses. Mrs. Florence Smythe succeeded Ms. Bruce as superintendent in 1915 and all classes of nurses studied under Mrs. Smythe until the training program ended. The Tudor Revival Nurses Residence was built as a dedicated training school for nurses until 1941 when the training school was discontinued resulting from the adoption of new standards for teaching hospitals by the Ontario Department of Health which the hospital did not meet. Many nurses lived in the building some of whom stayed on as staff at the hospital after graduating. The Nurses Residence was later used as the Durham Regional Health Unit office, followed by an after-hours clinic and most recently as the Bowmanville Hospital Foundation. The house was designed by the architect Douglas Edwin Kertland. Mr. Kertland was a competitive rower who won a bronze medal on the eight man rowing team for Canada at the 1908 Olympics in London. He also served in the 126th Battalion in the First World War. After the war he studied architecture in England before returning to Toronto to work for John M. Lyle who is best known for designing the Royal Alexandra Theatre. In 1926, Mr. Kertland established his own Toronto practice and designed many homes in the Rosedale neighbourhood of Toronto as well as the art deco Automotive Building at Exhibition Place in Toronto 4� L Nurses Residence (circled) on Bowmanville Hospital property ! i I" ior" . .. ! i 9.�143)�� 1 � 3X3j� ___T7 +}I+l1+ # f 7 �Ilfi� �7 f .� r f t M}� F in f! �� �. } P,7;�t� SUer;l Nurses Residence (circled) on Bowmanville Hospital property Attachment 2 to Report PSD -030-18 3347 Liberty Street North The house at 3347 Liberty Street North was constructed circa 1860. The house is a very good example of a small Regency cottage built of coursed ashlar fieldstone and features a central gothic gable with a louvered vent above the front door. The rectangular transom over the front door has a simple Regency glazing pattern and the windows feature an elegant six over six pane sash. Although many similar cottages were built in Bowmanville in the mid -19th century, this was the only example to be built in fieldstone. Attachment 3 to Report PSD -030-18 45 Raynes Avenue (Goodyear) In 1905 the Durham Rubber Company received a loan from the Town of Bowmanville to purchase lands from the Raynes Estate, off of Queen Street, to establish a new manufacturing facility. The buildings were completed in 1906 and the company began producing carriage and bike tires amongst other rubber items. In 1910, The Durham Rubber Company entered into an agreement with Goodyear to start manufacturing automotive tires in Canada. The Bowmanville plant was the first Goodyear facility outside of the United States. The establishment of Goodyear in Canada meant the first pneumatic tires manufactured in Canada were produced in Bowmanville. In 1911 an addition was constructed to meet the demand of tire production. In the same year the Durham Rubber Company could not maintain the production level of their agreement with Goodyear and are bought by Goodyear. Goodyear continued to expand and employ additional workers. They recruited workers to come to Bowmanville. In order to meet the housing requirements for the new workers Goodyear purchased the Balmoral Hotel (the northeast corner of King Street and Division Street) to house workers and constructed over 50 semi-detached dwellings on Carlisle Avenue. By 1917 the plant was producing 260,000 tires a year and employed over 900 people. The original two factories, including the front addition that connect them, remain on the site today with many additional additions over the years. The Goodyear building represents one of the oldest and most important industries in Bowmanville's past. The Goodyear buildings are constructed of wood and faced with brick along Raynes Avenue (a private street). The windows that once provided light into the building have been bricked. The sides of the buildings have been altered over the years as additions were built and floor space expanded. The timber in the buildings is old growth wood, the floors are planks laid on edge and the columns are over a half metre squared. The architecture of industrial buildings in the 1800 and early parts of the 1900's is very unique in today's landscape. Industrial buildings at the time had a very utilitarian nature to them that placed them lower in social and therefore aesthetic hierarchy. Buildings were generally constructed with straightforward and repetitive forms with efficiency and safety being the main goals. Buildings were generally long and narrow with windows on both sides of the building to allow as much natural lighting as possible. The narrowness allowed the natural light to penetrate to the middle of the building and usually allowed for machinery on both sides of the building with an interior walkway. The buildings were encouraged to have flat roofs and avoid attic spaces and often had separate stair corridors for fire prevention. Goodyear site showing buildings with significant heritage interest (circled), pending findings of the HIA H W V iE i rT� THE GOODYEAR FACTORY 45 RAYNES AVENUE In 1897 the Bowmanville Rubber Co. was established in a three-storey building on King Street East. Within a year it was in financial difficulties and sold out to the Durham Rubber Co. Ltd. The latter com- pany was more successful and in 1905 was ready to expand. With a loan from the Town, land near the present Goodyear plant was purchased from the Raynes estate. By 1906 the company had erected a mod- ern two-storey factory and was producing carriage and bicycle tires along with a variety of other items. The same year as the Durham Co. started in Bowmanville, the Goodyear Tire & Rubber Co. commenced oper- ation in an old strawboard factory in Akron, Ohio. Its thirteen employees began by making bicycle tires, horseshoe pads, and poker chips. In 1899 they added automobile tires. The company grew rapidly and, by 1910, in order to circumvent the 35% tariff on imported tires, decided to start manufacturing in Canada. Bowmanville was the ideal place as it was close to both railway lines, the McLaughlin Motor Car Co. in Oshawa, and the Goodyear sales office in Toronto. More important, it was the home of the Durham Rubber Co. which was willing to enter into a joint venture. In March 1910 Goodyear agreed to erect an addition to the Durham plant. In return, Durham would do the milling and calendering for a tire factory that Goodyear was building next to it. The demand for tires increased beyond expectation and Durham did not have, nor could it afford to buy, the machinery needed to meet its part of the bargain. It sold out to Goodyear in December. The seventy-five skilled workmen on Durham's payroll were transferred to Goodyear's. By 1916 Goodyear was employing over 700. The upper storey windows of the building, built by Goodyear to connect the two early factories, are still in place.