273-279 Sussex Drive

CULTURAL HERITAGE IMPACT STATEMENT 273 AND 275-279 SUSSEX DRIVE, OTTAWA Issued: August 9, 2012

273-279 SUSSEX DRIVE

PREPARED FOR: PREPARED BY: Delcan Corporation ERA Architects Inc. 1223 Michael Street, Suite 100 10 St. Mary Street, Suite 801 Ottawa, ON K1J 7T2 Toronto, Ontario M4Y 1P9 416-963-4497

Project: 11-103-01 Prepared By: MM/JK/LR/SH Cover Image: 273 and 275-279 Sussex Drive from the west. Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

CONTENTS

EXECUTIVE SUMMARY III 1 INTRODUCTION 1 1.1 Scope of the Report 1.2 Present Owner Contact 1.3 Site Location and Description

2 BACKGROUND RESEARCH AND ANALYSIS 3 2.1 Site History 2.2 Design 2.3 Context

3 STATEMENT OF SIGNIFICANCE 10 4 ASSESSMENT OF EXISTING CONDITION 12 5 POLICY REVIEW 13 5.1 City of Ottawa’s Official Plan 5.2 Lowertown West Heritage Conservation District (HCD)Plan 5.3 2005 Canada’s Capital Core Area Sector Plan

6 ASSESSMENT OF DEVELOPMENT 18 6.1 Development Proposal 6.2 Assessment

7 CONSERVATION STRATEGY 21 7.1 Mitigation Options

8 CONCLUSION 26 9 BIBLIOGRAPHY 27 10 PROJECT PERSONNEL 28 11 APPENDICES 30 Appendix 1: Review of Key Heritage Policy Appendix 2: Guidelines for the Preparation of Cultural Heritage Impact Statements in the City of Ottawa Appendix 3: 273 Sussex Drive: Heritage Information Sheets from Lowertown West HCD study. Appendix 4: 275-279 Sussex Drive: Heritage Information Sheets from Lowertown West HCD study. Appendix 5: 273 Sussex Drive: FHBRO Evaluation. Appendix 6: 275-279 Sussex Drive: FHBRO Evaluation. Appendix 7: “Sussex Drive Reconstruction: Sussex Drive Bend - Road Geometry” Technical Memo by Delcan Corporation dated July 30, 2010. Appendix 8: NCC Long Term Vision, November 4, 2011 Appendix 9: Cost Estimations by the NCC for the building relocations.

Issued: 9 August 2012 i Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

ii Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

EXECUTIVE SUMMARY

ERA Architects was engaged by Delcan Corporation to prepare a Cultural Heritage Impact Statement (CHIS) assessing the heritage impact of the proposed reconstruction of Sussex Drive between Cathcart and Boteler Street on the properties located at 273 and 275-279 Sussex Drive as part of a Federal Environmental Assessment and in conjunction with municipal approvals. The reconstruction is in the vicinity of the ‘Sussex Drive bend’, which forms part of Confederation Boulevard, and is located at the north west corner of the Lowertown West Heritage Conservation District (HCD).

It is our understanding that the National Capital Commission (NCC) and the City of Ottawa have agreed that the Sussex Drive bend is to be modified to address road safety requirements and accommodate the multiple planned functions of Sussex Drive, which include wider sidewalks and dedicated cycling lanes. The proposed street modifications will encroach on NCC properties and would implicate the relocation or removal of the two building at 273 and 275-279 Sussex Drive. These properties form part of the Lowertown West HCD and are both designated under Part V of the Ontario Heritage Act. The Lowertown West HCD identifies them as Category 3 buildings, defined as ‘heritage components of an area’; ‘outside heritage districts these buildings would have less importance and may not warrant individual designation.’

Under federal jurisdiction, these two properties have been assessed by the Federal Heritage Buildings Review (FHBRO) and neither were recognized nor classified based on federal criteria.

The Lowertown Community Association has opposed the removal of these two properties, claiming they both form an integral part of the community and must be retained. A public consultation process and the Environmental Assessment have permitted an open dialogue with the local community focused on the project’s rationale and objectives as well as on examining possible solutions to preventing the demolition of the buildings.

Several mitigation options were studied in response to the proposed roadway modifications and are described below:

Option 1: Building Relocation On-Site

In order to conserve the street wall condition along Sussex Drive and to minimize the impact to the HCD’s boundary, both buildings should be relocated (moved backwards) on site.

Issued: 9 August 2012 iii Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

A derivative of this option would involve the demolition of 273 Sussex Drive only and the on-site relocation of 275-279 Sussex Drive. As discussed in the FHBRO evaluation of the building, 273 Sussex Drive is less characteristic of the Lowertown HCD, and thus has less associative value. This option allows for the on-site relocation of 275-279 Sussex Drive.

Option 2: Relocation of Buildings to Other Lot(s)

Another option would be to relocate the buildings to another site. This process typically entails the structural reinforcement to enable transport and relocation on a custom design foundation constructed on a host lot.

Option 3: Demolition of Heritage Buildings and New Construction:

This option would involve the demolition of the buildings and replacement with new buildings. The design of the new development would have regard for all applicable planning policies, including design guidelines provided in the Lowertown HCD Plan.

Option 4: Demolition of Heritage Buildings and Provision of Interim Landscaping

This option involves the demolition of both buildings and replacement with landscape modifications completed in accordance with a landscape plan prepared by professionals. As the NCC has no immediate plans for the redevelopment of the properties, this short term solution would address the immediate impacts of the loss of the two buildings. Under this option, with both heritage buildings demolished, the northwest boundary of the HCD will be made vulnerable and expose the side of 32-36 Bolton and the back sides of the buildings on the north side of Cathcart Street east of Sussex Drive. An interim landscape plan to buffer these informal faces to/from the formal character of Sussex Drive would be provided.

The NCC vision for Confederation Boulevard in the 2005 Capital Core Area Sector Plan states that there should be more focus on making Confederation Boulevard a destination, rather than a travel corridor. At the same time, the corridor is designated by the City of Ottawa as an Arterial Road, Cycling Corridor, and Truck Route. An interim landscape plan would address NCC objectives for Confederation Boulevard such as improvements to the public realm, green open space, public art and an international focus. For example, the landscape plan could accommodate either an interpretative element or public art display, or engage the Ottawa River by taking advantage of views, or establishing an anchor for a pedestrian pathway along the river.

iv Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

Analysis of Options and Recommendation

The NCC has advised that it is financially unviable to relocate either or both of the buildings on the site or onto another site. Hence, Options 1 and 2 are not being pursued. The NCC further advises that it has no short term plans for the redevelopment of the site. Hence, Option 3 is not viable at this time, but this remains the long term plan. Option 4 remains a viable alternative. According to best practices in heritage conservation districts, the following would be required prior to approval of a demolition permit to enable Option 4:

• An interim landscape plan prepared by a professional landscape architect;

• Archival documentation of the two buildings in the form of architectural measured drawings and photo documentation prepared by qualified professionals (to be made available to City of Ottawa for record purposes);

• More detailed historical research on the properties, including a land use history, archival photographs, maps and other information regarding the heritage resources.

Under Option 4, an interim landscape plan should be implemented until the NCC decides on the most appropriate long term use for the site and develops a redevelopment strategy for the properties. Option 3 (building replacement), as outlined in section 7.1, is recommended as a long-term strategy. Given the prominence of the site and the location at the northwest corner of the Lowertown West HCD, it is recommended that interventions on the properties:

• Contribute to the heritage character of the Lowertown West HCD and Sussex Drive;

• Establish a coherent street wall;

• Transition from the residential character of the HCD to the institutional framework of Confederation Boulevard; and

• Provide public realm improvements consistent with the NCC’s long term plan for Confederation Boulevard.

Issued: 9 August 2012 v Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

vi Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

1 INTRODUCTION

1.1 Scope of the Report This cultural heritage impact statement has been prepared by ERA Architects Inc. as a sub-consultant to Delcan Corporation. As outlined in the “Guidelines for the Preparation of a Cultural Heritage Impact Assessment” (included in Appendix 2), the purpose of this report is to identify the resources that will be affected by the roadway reconstruction of Sussex Drive between Cathcart and Boteler Streets on the heritage resources located at 273 and 275-279 Sussex Drive, and to recommend a mitigation strategy and overall approach for the conservation of the heritage value of these and adjacent resources.

The following were used in preparing this HIA: »» Part V of the Ontario Heritage Act; »» Parks Canada Standards and Guidelines for the Conservation of Historic Places in Canada; »» The Province of Ontario’s 2005 Provincial Policy Statement for the Regulation of Development and Use of Land; »» Lowertown West Heritage Conservation District Plan (1993);

»» Guidelines for the Preparation of a Cultural Heritage Impact Assessment, City of Ottawa (see Appendix 2); »» NCC Core Area Plan (2005); and »» Confederation Boulevard objectives, standards & guidelines.

1. Location of 273-275 Sussex Drive is along Confederation Boulevard (Source: National Capital Commission).

Issued: 9 August 2012 1 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

1.2 Present Owner Contact The owner of the subject properties is the National Capital Commission (NCC). National Capital Commission 202-40 Elgin Street Ottawa ON K1P 1C7

1.3 Site Location and Description The site is located in the northwest corner of the Lowertown West Heritage Conservation District (HCD). Lowertown West was designated under Part V of the Ontario Heritage Act as a heritage conservation district in 1994 and forms part of the first settlement in Ottawa. The site is situated along the edge of the district on Sussex Drive. It forms part of Confederation Boulevard and is the subject of streetscape and public realm improvement plans. The properties at 273-279 Sussex Drive were purchased by the NCC in 1980 for site redevelopment. Concurrently, the NCC developed its concept for Confederation Boulevard in the 1980s, which indicated the subject properties as a potential development site.

The building at 273 Sussex Drive is a single-family detached residential house built in 1945. The building at 275-279 Sussex Drive is a multi-unit row of three houses built in 1885. They are associated with the evolution of the historic Lowertown West neighbourhood and have privileged views of the Ottawa River. The two properties form part of a city block of residential uses along Sussex Drive that is predominantly lined with significant institutional buildings.

2. Aerial view of site along Sussex Drive (Source: Google maps).

LADY GREY DRIVE

BOLTON STREET

273 Sussex Drive

275-279 Sussex Drive

SUSSEX DRIVE

CATHCART STREET

2 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

2 BACKGROUND RESEARCH AND ANALYSIS

2.1 Site History The properties at 273-279 Sussex Drive lay outside the 1842 Plan of Bytown. This area was initially surveyed by Colonel John By to encourage respectable settlement in conjunction with the construction of the Rideau Canal project. Bytown was divided into Uppertown and Lowertown. Lowertown, located east of the Rideau Canal, emerged as the commercial centre of Bytown. The British Ordnance Department administered Bytown, rather than the newly formed Province of Canada, and governed the development of Lowertown in the 19th Century. The triangular portion of Crown lands roughly bound by Cathcart Street and the Ottawa and Rideau Rivers was referred to as Letter O and released for development in 1845.

The lots at 273-279 Sussex Drive were part of the Letter O lands. These developed as an extension of the existing Lowertown grid. The property at 275-279 Sussex Drive remained vacant until the construction of the current building in 1903. It was built between a carriage shop/hotel on the corner of Cathcart and Sussex, and a hotel/variety store on the corner of Bolton and Sussex. The building was a row of three attached dwellings (a double house and 1/2) with rear additions completed in the 1940s.

Fire insurance maps indicate that the original building at the corner of Bolton and Sussex was a stone building with a rough cast or stucco addition. The 1901 fire insurance plan indicates that a veterinary operated at the rear of the 273 Sussex Drive site. The veterinary was replaced by a wood frame, brick veneer duplex by 1912. In 1946, the stone building and duplex was replaced by the existing building - a single family residence.

3. Fire insurance plans with site area highlighted in red (Source: National Archives of Canada). 1878 1901 1912

Issued: 9 August 2012 3 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa highlighted in red (Source: Public Archives Canada). 4. 1842 Plan of Bytown with the lands referred to as “Letter O” showing to be Crown Reserve land. Approximate location of site of 273-279 Sussex Drive

4 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa Lowertown in 1879 including the subdivision of Lot Letter O. Approximate site of 273-279 Sussex Drive highlighted in red. Drive highlighted 273-279 Sussex site of Approximate Lot Letter O. of subdivision the Lowertown in 1879 including 5. (Source: H.Beldan & Co. Atlas). H.Beldan (Source:

Issued: 9 August 2012 5 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

2.2 Design

2.2.1 273 Sussex Drive Constructed in 1946, 273 Sussex Drive is an asymmetrical, detached dwelling with a steeply pitched gable roof. It is clad in brown brick with wood siding at the roof peak, extending to the top of the second storey window.

The majority of windows are wood frame, arranged in a series of 2 to 4 one-over-one sash windows separated by mullions and set within simple stone sills and lintels. 6. West Elevation. 273 Sussex Drive. The panelled wood garage also has a stone lintel. The Builder or architect unknown. (ERA). entrance is articulated by a gabled wall on the left side of the principal facade. Field stones frame the sides of the front door. The small window to the left of the door has the same treatment. The door is accessed by a small set of stairs. The building has elements of the Arts and Crafts style, as shown in the steep pitch of the roof and use of materials. It is unlike other residences in the area1.

An evaluation of 273 Sussex Drive, conducted by the Federal Heritage Building Review Office (FHBRO) in 2004 7. North Elevation. 273 Sussex Drive. (ERA). states that the building is representative of a second wave of development in an urban district already established. It also states that the building does not represent a turning point in the evolution of the area and its contribution to the Lowertown West HCD is thus limited.

8. East Elevation. 273 Sussex Drive. (ERA).

1 City of Ottawa Heritage Survey and Evaluation Form. Building File No. PD: 4300 Sussex 273

6 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

2.2.2 275-279 Sussex Drive Built between 1903 to 1905, 275-279 Sussex Drive is a flat- roofed, brick veneer row house with stone foundation. It has two tiered entry porches and a panelled cornice with end brackets and finials. It represents a common housing form in Lowertown West. As identified in a FHBRO evaluation of the building in 1986, the building is typical of the local development pattern of the time, occupying the whole width of the lot, and its location close to the street line. 9. West Elevation. 275-279 Sussex Drive. Builder or architect unknown. The Lowertown West HCD study identifies the flat-roofed double (ERA). house as the most prevalent historic house type in Lowertown West. The flat-roofed attached house was first introduced within the district in the 1880s1 during a period of growth and development that continued into the 1910s2. Constructed in 1903-05, 275-279 Sussex Drive is associated with this period of development. Rear additions were carried out in the 1940s and the ground floor porches were replaced in 1959.

10. East Elevation. Rear additions carried out in 1940s. (ERA).

11. Detail of cornice and finial on front elevation. (ERA).

1 Lowertown West Heritage Conservation District Study. May 1993. p.89. 2 ibid. p.68.

Issued: 9 August 2012 7 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

2.3 Context The bend of Sussex Drive beginning at the northwest corner of the subject site, was determined by the triangular shape of the Letter O lands. Lots were slightly skewed to accommodate the incorporation of the triangular Letter O lands into the rectangular grid of the rest of Lowertown. 12. Looking south along Sussex Drive Urban renewal schemes during the 1970s demolished a from the Agha Kahn Foundation building. significant portion of the Letter O portions of Lowertown, which are now occupied by large institutional buildings such as the Agha Kahn Foundation and Lester B. Pearson Building. Bolton Street now marks the northern extent of what remains of the original block pattern of Lowertown West.

Situated adjacent to the Ottawa River, Sussex Drive has 13. Looking north at Sussex Drive historically acted as the edge of Lowertown. In the evolution bend with view of Ottawa River in of the area, institutional buildings along Sussex Drive background. have developed as large complexes, and the 19th century residential urban block has been modified along Sussex Drive.

The subject site has thus far acted as the northwest boundary of the Lowertown West HCD and is important in maintaining the integrity of the urban block form defined by Sussex Drive, Bolton Street, Parent Avenue and Cathcart Street. 14. Looking south on Sussex Drive at site location with view of institutional Nevertheless, it also represents an anomaly along Sussex and landmark buildings. Drive, which is defined by large, institutional buildings.

The sharp corner in the alignment of Sussex Drive has been a safety concern of the municipality for many years. The Sussex Drive right-of-way is owned by the City of Ottawa. The corridor was also designated in 1986 as Confederation Boulevard in the NCC’s Plan for Canada’s Capital (PCC). The City and the NCC collaborate in the reconstruction of the 15. Sussex Drive, south of the Lowertown West HCD boundary and surface elements of Confederation Boulevard. The Sussex Bytown Market neighbourhood, is well Drive Reconstruction Project provides an opportunity defined by street level retail. to correct the roadway safety concern as well as better providing for pedestrians and cyclists using the corridor.

8 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

JOHN G. DIEFENBAKER BUILDING

LESTER B. PEARSON BUILDING

SUSSEX DRIVEAGHA KAHN FOUNDATION

ALEXANDRA BRIDGE

JAPANESE PARENT AVE EMBASSY

OTTAWA RIVER BOLTON ST

ROYAL CATHCART ST CANADIAN MINT

BRUYERE ST

ST ANDREW NATIONAL GALLERY OF CANADA GUIGES AVE

ST. PATRICK ST PEACEKEEPING MONUMENT MURRAY ST

AMERICAN CLARENCE ST EMBASSY

CANADAN YORK ST REVENUE AGENCY DALHOUSIE ST DALHOUSIE

PARLIAMENT AVE KING EDWARD HILL CHATEAU GEORGE ST LAURIER

WELLINGTON STREET RIDEAU ST N RESIDENTIAL USES CONFEDERATION BOULEVARD INSTITUTIONAL USE/LANDMARK BLDG LOWERTOWN WEST HCD BOUNDARY STREET LEVEL RETAIL

16. Study of uses along Sussex Drive.

Issued: 9 August 2012 9 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

3 STATEMENT OF SIGNIFICANCE

Both buildings on the subject site are designated under Part V of the Ontario Heritage Act as contributing buildings within the Lowertown West HCD. As part of the Lowertown West HCD study, 273 Sussex Drive and 275-279 Sussex Drive were individually evaluated in accordance with the City of Ottawa’s BOLTON ST evaluation procedure for heritage buildings. Both are identified as Group 3 buildings, defined as: ‘heritage components of an area’; ‘outside heritage districts these buildings would have less importance and may not warrant individual designation’1. CATHCART ST

SUSSEX DRIVE FHBRO also conducted studies on each building to evaluate whether their individual heritage value was of federal significance. The report on 273 Sussex Drive2 states that the building does not represent a significant period in GROUP 2 the evolution of Lowertown. However, the 275-279 Sussex GROUP 3 3 Drive report states that it represents a common housing GROUP 4 form in Lowertown West and the building follows the UNEVALUATED OR OUTSIDE HCD identified development patterns in the HCD. Both studies determined that the buildings did not merit federal 17. Evaluation of heritage buildings from Lowertown West HCD study. designation (see appendix 5 and 6 for FHBRO reports). (ERA).

Conversely, the properties were designated by the NCC as National Interest Land Mass lands, defined as lands that are symbolically meaningful to Canadians and are needed in order to achieve the NCC’s long term plans for Canada’s Capital Region.

1 The categories are defined as follows: Group 1: prime heritage buildings worthy of individual designation; Group 2: integral components of a heritage district; not as significant as group 1 buildings but may nonetheless warrant individual designation; Group 3: heritage components of an area; outside heritage districts these buildings would have less importance and may not warrant individual designation; Group 4: buildings of negligible or no heritage value. 2 Federal Heritage Building Review Office (FHBRO), Evaluation Report: 03-138: Single-family residence, 273 Sussex Drive. (2003). 3 Federal Heritage Building Review Office (FHBRO), Evaluation Report: 86-33: 275-279 Sussex Drive. (1986).

10 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

As illustrated in figure 16, the buildings at 273-279 Sussex Drive contribute to the block pattern that is important to the character of the District. This block is important to the integrity of the northern boundary of the District, which has been undermined by urban renewal schemes. The value of 273-279 Sussex Drive lies in their role in completing the residential block pattern of the block bounded by Sussex Drive, Bolton Street, Parent Avenue, and Cathcart Street. It is also of cultural interest that Adrienne Clarkson, Governor General of Canada between 1999 and 2004, lived in 275-279 Sussex Drive for a period of time as a young girl.

Individually, 275-279 Sussex Drive, which is illustrative of a typical Lowertown West building typology, provides greater heritage value to the District, and thus merits higher heritage priority, than 273 Sussex Drive. As seen in figure 18, Group 2 building, 283 Sussex Drive, has greater visual coherence with 275-279 Sussex Drive than 273 Sussex Drive.

18. Photo collage of 273, 275-279, and 283 Sussex Drive between Bolton and Cathcart Streets. (ERA).

Issued: 9 August 2012 11 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

4 ASSESSMENT OF EXISTING CONDITION

ERA Architects undertook a site review on January 5th, 2012. Visual inspection of the exteriors was undertaken from the ground. The building interiors were reviewed with the exception of the garage of 273 Sussex Drive and the interior of 275 Sussex Drive. The roofs were not inspected, nor were any destructive investigations undertaken.

4.1 273 Sussex Drive

The building is generally in sound condition. Elements of the exterior envelope, such as the masonry, wood siding and roofing, have generally been well maintained. Building elements that are in poor condition include a small roof leak at the back of the second floor and the wood windows.

19. Masonry and wood siding have been well maintained at 273 Sussex Drive. (ERA). 4.2 275-279 Sussex Drive

The two-level apartment units are generally in sound condition. The exterior envelope consists of red brick walls sitting on a stone foundation, a flat roof, replacement windows, and includes features such as a sheet metal and wood cornice and wood balconies at the front, all of which are in sound condition. The interiors are also in sound condition. Water damage to the wood floor at the second level of 279 Sussex Drive, as well as holes in the drywall ceiling of 277 Sussex Drive, were noted.

20. Cornice, wood balconies, red brick walls, stone foundation, and windows are in good condition at 275-279 Sussex Drive. (ERA).

12 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

5 POLICY REVIEW

ERA Architects has reviewed heritage conservation policy relevant to the proposal. The full heritage policy framework review, including the provincial policies and guidelines for the preparation of a cultural heritage impact assessment, is included in Appendix 1 and 2 of this report.

5.1 City of Ottawa’s Official Plan Municipal policies relating to heritage preservation are detailed in the City of Ottawa’s Official Plan in section 4.6.1 Heritage Buildings and Areas, as amended. When a building located within a heritage conservation district is proposed for demolition, the City may require a Cultural Heritage Impact Statement be conducted. This study fulfills this policy (section 4.6.1.2) requirement to:

a. Describe the positive and adverse impacts on the heritage conservation district that may reasonably be expected to result from the proposed development;

b. Describe the actions that may reasonably be required to prevent, minimize or mitigate the adverse impacts

c. Demonstrate that the proposal will not adversely impact the cultural heritage value of the Heritage Conservation District,

d. When evaluating an alteration or addition to a building located in Heritage Conservation District, the impact statement will address the heritage conservation district study or the Council-approved “Heritage District Plan” of that district for design guidance. If no such plan exists, the impact statement will address the heritage study of the area for design guidance.

In this instance, guidelines within the Lowertown West Heritage Conservation District Plan will be addressed.

Further policies within this section that are of particular relevance to the proposed work at 273-279 Sussex Drive include:

4.6.1 Heritage Buildings and Areas

4. Where relocation of a structure designated under the Heritage Act is proposed, the City will require that the cultural heritage impact statement demonstrate that relocation is the only way to conserve the resource. The City may consider the option provided that: [Amendment #76, August 04, 2010]

Issued: 9 August 2012 13 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

a. The building is retained on site, but moved to another part of the property for integration into the new development, or, if that is not possible;

b. The building is relocated to a site appropriate to its cultural heritage value outside the proposed development or property.

5. Where an owner of a designated heritage property applies for approval to demolish the property, the City will require a cultural heritage impact statement that, in addition to the regular requirements, will demonstrate that the rehabilitation and reuse of the property is not viable. The City may consider acquisition of the property where it determines that it is in the public interest to do so, and the property is considered to be of sufficient cultural heritage value to the community. [Amendment #76, August 04, 2010]

Given the complexities and constraints of the site, it is recognized that the potential relocation or demolition of the heritage buildings at 273-279 Sussex Drive may be required. The completion of this study responds to this situation and has regard for the associated Official Plan policies guiding the completion of Cultural Heritage Impact Statements. For example, relocation is demonstrated and documented to be unviable through a cost estimate analysis conducted by the NCC, included in Appendix 9. It is is understood that both the NCC and the City of Ottawa are in agreement that the proposed street modifications will encroach on the subject properties and would implicate the relocation or removal of the two buildings at 273 and 275-279 Sussex Drive. Mitigation options are discussed in section 7 of this report.

14 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

5.2 Lowertown West Heritage Conservation District (HCD)Plan Situated within the Lowertown West HCD Plan, the alteration of 273-279 Sussex Drive is subject to the policies and guidelines of the HCD Plan, as decreed by Section 4.6.1 of the Official Plan.

Guidelines for demolition within the Plan include:

7.5.4 Guidelines for Demolition

3. Structures deemed not to have heritage significance may be considered for demolition, if an appropriate replacement structure is proposed.

Prior to the approval of demolition within the HCD, new construction should be proposed and approved by Council to replace the structure. Any new construction should conform to the Lowertown West HCD Plan guidelines for infill buildings (Section 7.5.5 of the HCD Plan).

The Lowertown West HCD Plan acknowledges that while Sussex Drive forms a strong western boundary to the District, as it formed the boundary for the early residential subdivision of land for Lowertown, Sussex Drive also forms part of Confederation Boulevard. The Plan states that:

Sussex Drive forms part of the National Capital’s Ceremonial Route’s design guidelines and the streetscape improvements fall under the jurisdiction of the National Capital Commission. This current study supports the objectives and initiatives of the NCC streetscape improvements on Sussex Drive. page 126.

The Lowertown West HCD, designated in 1994, is consistent with the NCC’s plans for streetscape improvements along the National Capital’s Ceremonial Route (now referred to as Confederation Boulevard). Since the 1980s concept plan for Confederation Boulevard, the site at 273-279 Sussex Drive has been identified by the NCC for use for street realignment and redevelopment purposes.

The long-term development strategy for the subject site should aim to achieve the objectives of both the Lowertown West HCD Plan and the NCC’s streetscape improvements on Sussex Drive, as detailed in the 2005 Capital Core Area Sector Plan.

Issued: 9 August 2012 15 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

5.3 2005 Canada’s Capital Core Area Sector Plan Located along Sussex Drive South, which forms a portion of Confederation Boulevard, the site falls within Canada’s Capital Core Area Sector Plan. This is a federal development plan for government lands in the core of Canada’s Capital Region (see image on opposite page). The Plan recognizes Confederation Boulevard as a cultural landscape that requires preservation and management. Relevant policies from this plan in relation to the proposal include:

Section 3.1

• Reinforce Confederation Boulevard as the location for the most important political and cultural institutions in Canada, as the Capital’s ceremonial route, as the showcase of significant monuments and other symbols, and as the centre of programming and interpretation activities in the Capital;

• Preserve and manage Confederation Boulevard as a cultural landscape, in accordance with NCC cultural landscape policy; and,

• Maintain this area [Sussex Drive South] of nationally significant cultural institutions, commemorations, public programs and open spaces, as well as the location of several diplomatic missions.

The Core Area Sector Plan also encourages the pursuit of opportunities to pursue infill development at select points along Sussex Drive. As noted earlier, these two properties are part of the NILM land designation and are identified in the Plan.

The buildings at 273-279 Sussex Drive are located where the Lowertown West HCD and Confederation Boulevard intersect (see figure 16 on page 9). The proposal will have to balance the policies related to the NCC’s beautification of Sussex Drive, and the heritage value of the buildings, as part of the Lowertown West HCD. As Group 3 buildings within the HCD, the houses at 273-275 Sussex Drive contribute to the character of the District, but have less significance when evaluated individually. Moreover, the residential use of the buildings at 273-279 Sussex Drive represent an anomaly along Sussex Drive, which is lined with significant institutional uses and large, landmark buildings.

The recommendations from the following assessment of the development proposal and mitigation strategy are derived from this policy review and the background research and analysis.

16 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

1500m LA

APITAL 6 DE C

S ’

LeBreton South/ LeBreton sud Ottawa River/ Rivière des Outaouais Promenade du Portage Brewery Creek and Portage Park/ Ruisseau de la Brasserie et parc des Portageurs Ottawa CBD/ Centre des affaires d'Ottawa Precinct/ Theatre Arts & Retail, Arrondissement arts, du théâtre et du commerce Market/ ByWard Marché By Old Hull/ Vieux-Hull Sparks Street/ Rue Sparks Confederation Boulevard/ Boulevard de la Confédération Boundary/ Area Core Limite du Coeur de la capitale E 9 1000 8 7 11 14 15 10 12 13

I N C . H

C OEU R

ANADA

C U DU C

A B FOR

É 500 Janvier 2004 /

LAN / S T R A T E G I S T A R T S S EC TEU R

T P

REA F 250 Legende DE A Parliamentary Precinct East/ and Parliamentary Precinct West Judicial Precinct / Cité parlementaire est Cité parlementaire ouest et cité judiciaire Sussex South/ Promenade Sussex sud Sussex North/ Promenade Sussex nord Chaudières and Industrial Waterfront, Islands/ West Victoria Aire riveraine industrielle, Îles des Chaudières ouest et Victoria Island East and Richmond's Landing/ Victoria est et débarcadère de Richmond Île Victoria The Islands and LeBreton North/ LeBreton nord

A A B B

C A A B R Parliamentary Precinct/ Cité parlementaire Gatineau Central Waterfront/ Aire riveraine centrale de Gatineau Sussex Islands and LeBreton North Les îles et LeBreton nord Rideau Canal/ Canal Rideau Jacques Cartier Park/ Parc Jacques-Cartier 1 1 4 4 3 4 3

ORE January 2004 / D EC TO R LAN U R B A N A U R B D e lc a n Meloshe & AssociatesApropos Planning Ltd. 0 6 4 2 3 5 1 CHARACTERAREAS/ AIRES CARACTÈREÀ DISTINCT P S CAPITALE C Legend/

Y A W K R A P R E I N T S A G V N O I N E P G MMI D U R

C B

E S

F K

I C

C N

I N E I

O L R

R T R

H G

C E F

C T

A A F

T D

U I

P R P D

R C P

R T

E T

S U C H A R L O T T E

A R E

PARC PARK

C PARC PARK

E MACDONALD

Y R

A STRATHCONA

L K C R A N G E A L

M C HENEY TORMEY

A M A R L B O R O U G H

R G O U L B O U R N A U G U S T A

B L A C K B U R N

K C H A P E L E

R S

R N

O R

E D T R A

P D

Y E R

R E

. R

A O

E L

T E X

Y M

U P

S S

Y W

B E

L R L G R U S S

D S E L L M E

IV I

S N O

L S

E A A T T E

S PARC PARK O M R B D S W L O S T

U R

S F R I E L YORK

4 A

2 E S W E E T L A N D PARC PARK ID NEW EDINBURGH BORDELEAU

R ARK HILL PARC P

E SANDY R N E L S O N N E L S O N IE IV R H E N D E R S O N AFFAIRS A F F A I R E S EXTERNAL K I N G E D W A R D K I N G E D W A R D ÉTRANGÈRES\

L O U I S P A S T E U R

UAIS 13 12 O

A U C U M B E R L A N D T A

OTTAWA S U E A D’OTTAWA/ L E

UNIVERSITÉUNIVERSITY O V

T E I

ES H D R R E O C AFFAIRS C I

FOREIGN R W

U I Y K R S I T É A F F A I R E S I V E R Y N

A E U B E N N E N G L

C C S R E

R G

L I N

Y O

ÉTRANGÈRES\

D O UI

X R L

E U

T T R E

N E O L

G L

A C

U W R O

T A A L E .

C E

L O

O K

T CNRC/NRC S P R

D P S C G

B B

R E B . I V

T O R

US D

S Y H

T S RE E D A L H O U S I E B A

IZ 3 L IE E N E E U

. Q

RIV O

R T R

P B O N I C H O L A S R

W I L L I A M

P A R E N T

N D L A O D c a M RIDEAU CENTRE CENTRE R CENTRE

E CONGRESS ELISABETH-BRUYERE I BASILICA l T BASILIQUE a

NOTRE-DAME n R S U S S E X a 5 T A C C u N - E a O D G e P DES L D id U.S.A. A I M a c K E N Z I E N R EMBASSY al R

C I T Y H A L L C A R T I E O AMBASSADE n R 6 B a

D A C C H O T E L D E V I L L E A PARK M P A R C DL E A LAURIER CHATEAU 3 M U S E E ARTS CONFEDERATION G A L L E R Y C E N T R E CENTRE NATIONAL PARC PARK OFCANADA D EA S R T S / N A T I O N A L D C U A N A D A / NATIONAL E L G I N DESBEAUX-ARTS MAJOR HILL SQUARE P L A C E D E L A

CONFEDERATION

A D

T N M E T C A L F E

R T

N PARC PARK O D

N E E P E

A G N

X I D A

E N M

Y CARTIER

L R E JACQUES

A B I

R L E

E M

I 1

I E

N L

R V

A W L

U A

E R

R I

A L W F

L A

C O ' C O N N O R

P R

V A

M P

E N A

N U D

D -

E N

R R

O E

V O S

I N

A A

P M E

M N

N E H

R C E

A T

IV B A N K

V É

- E T

S N

L E

U O

T R E

O N

E T A R A N

T A

S E

B E

2 A S R

I S

R G

A E

T I R

W T E

11 C S

R U R

U N

E P U c E

R O

E I

N K

A a Q O

C R P

A M

E T

L R T U

B O

A B

S U E

G E A

L L

N A T C

E L M

S P

A E A

R E O W N S J F

E K E N T J I

U T

- P M

R R E T E

A U

A U O S R

P I O

O P

C R C

C U

- O S E T

R C E I L C V L A I V S - B D E

R D - L Y O N A L 1 V T

E N TE L O E PARC PARK

U R H

O DUNDONALD 15

A B

L N

B B A Y U U

14 T

L 9

I N

D E A

O E I

V VA G D

R V

E D

L S A A

LA I

R U A

R E V T

A A D

P N C

E A

E R R

C E

N N I

U E A L D R I

A H

E O N J

A R

E V T

U M

G L A P E R C Y

N P

F O

I E

O O

P L O A

R O

I E

B A G T

D N

R P C I

P E

G N V B

A A

T S P

R K

N C

O I

I P

E T

L R

N N

T I O V P A

N U DE- A

O P O E - P

R R N R

F D L B

O PARC PARK

U E N

A O M c N A B B S

V T O R

T B

Y H A

D G NGT

D HO

I I E

R R L

U W E

4 N.

P R

M EL A

M C

D W

É S R

O T

S R

ST. VINCENT H T R M A

E N

T B

N O

L E

O L I

N N R D

R O

C A

G E

M L D

N I

S R

A B R

R I

PI D

G U

A 7

E C

T E T

O B .

P N

O T

E R

B E C L G E

T A

N E

N O R

M S O 4 L

T E H

G H

R T O

I O S D B

N I

OR L A

Y D

C S E

C O R

N É O

R F H

C COMMON

T A L P A L A I N E

R LEBRETON

T E

- B

L E

O T

10 S

D E R N P

L PARC PARK Falls A PLOUFFE

D Chaudiere

R Chutes de la

H A P

E V S

O E

- L

D O R

A B

E T

W S Y A

É E S B E S F C D L A D U A D E M E N

P R O

N O

PARK

I L

Map of sector plan for Canada’s Capital Core Area by Urban Strategies Inc. Inc. by Urban Strategies Area Capital Core Canada’s sector plan for of Map L

GATINEAU

E W 21.

Issued: 9 August 2012 17 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

6 ASSESSMENT OF DEVELOPMENT

6.1 Development Proposal The proposed development involves modifications to Sussex Drive between Cathcart and Boteler Street to provide a roadway that accommodates vehicular, pedestrian and on-street bicycling lanes. The project objectives include providing safe conditions in the vicinity of the Sussex Drive bend; additional width is required for the different user groups to safely negotiate the curve. As described in the Technical Memo by the Delcan Corporation (refer to Appendix 7 and Figure 21) the design criteria are as follows:

• Sidewalks: ideally 3 metres wide, not less than 1.8 metres, one on each side of the street;

• Bicycle paths: shared lanes not less than 4 metres in width, or dedicated bicycle lanes not less than 1.5 metres in width, one on each side of the street;

• Vehicular lanes: minimum width of 3 metres along straight roads, with an additional 0.25 metres required when adjacent to curbs or bicycle lanes; and

• Incorporation of the Confederation Boulevard standards in terms of curbs, street & pedestrian lighting, sidewalk widths and detailing.

Given the functional requirement for trucks and tour buses that travel along this portion of Sussex Drive, the most critical safety concern is the ability for these large vehicles to safely negotiate the curve while remaining in their own lanes. With the introduction of bicycle lanes along this portion of Sussex Drive (which will establish a continuous bicycle lane network Key Points: - Includes 1.5m on-street cycling lanes widening out to 1.8m around the bend - Narrow vehicle lanes around curve (3.0m-3.25m widening out to 3.5m around the bend) -Curves correspond to design speed of @ 60 km/hr - Likely posted speed of 50 km/hr - Sweep path of large vehicles falls primarily within lanes - Cyclists not encumbered - Sidewalk 2.5 to 3m on both sides - Requires both buildings to be demolished

from George Street to the Rideau River and beyond), sufficientACPDR As Described to Option 3: Cycling Lanes, (June 30, 2010) vehicular lane widths are critical to ensuring cyclists’ safety. The end result is a wider curb-to-curb cross-section being 22. Sussex Drive Reconstruction of Road Geometry - excerpt of Option 3, an essential requirement of both the City and the NCC. by Delcan Corporation.

18 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

Various design options to achieve street reconstruction objectives were prepared by the City and the NCC and presented for public review at a Public Open House held at the National Gallery on April 12, 2012. The options were thoroughly evaluated by the City and the NCC, having regard for a wide range of evaluation criteria including impacts on heritage resources. The following is a description of the preferred design option:

• Sidewalks: 2.5 to 3 metres wide, one on each side of Sussex Drive;

• On-street bicycle paths: 1.5 to 1.8 metres wide, adjacent to the sidewalks, one on each side of Sussex Drive;

• Vehicular lanes: 3 to 3.5 metres wide per lane, 2 lanes in each direction, with appropriate lane widening for traffic safety around the bend;

• A median in the centre of the road way from approximately Bolton Street, continuing to the north-east; and

• Enables the design of the street to Confederation Boulevard standards.

Issued: 9 August 2012 19 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

6.2 Impact Assessment The heritage impact of the proposed roadway modification is the encroachment of the new roadway onto the properties located at 273 and 275-279 Sussex Drive. The proposed road reconstruction conflicts with the placement of the two buildings. It would result in major alterations and/or loss of both buildings. As determined by a heritage evaluation by FHBRO in 19861 and 20032, however, the two buildings do not merit federal heritage designation. The two buildings are also located within the NILM lands designation which borders Confederation Boulevard and have long been implicated in the NCC’s plans for street improvements and infill development along the ceremonial route.

On the other hand, the loss of these buildings could potentially weaken the integrity of the boundary of the HCD which contains heritage fabric of a specific nature. Located at the north-west corner of the Lowertown West Heritage Conservation District (refer to Figure 16), the properties currently define the edge of the district’s block pattern.

The removal of the buildings would expose the lateral and back sides of the remaining residential properties on the city block to view from Sussex Drive, as shown in Figures 22 and 23. Given the prominence of Sussex Drive in Ottawa, the street edge of Sussex Drive is considered an important element which would require mitigation. Refer to Section 7 of this report for mitigation strategies and recommendations.

Both buildings are identified as Category 3 buildings within the HCD, meaning they are “heritage components of an area; outside heritage districts these buildings would have less importance and may not warrant individual designation.” The western portion of the city block on which the buildings are located is characterized by primarily Category 3 buildings, with the exception of 283 Sussex and 42 Bolton which are Category 2 buildings (refer to Figure 17).

23. West elevation of 32-36 Bolton Street. (ERA). 24. North elevation of houses along Cathcart Street. (ERA).

1 Federal Heritage Building Review Office (FHBRO), Evaluation Report: 86-33: 275-279 Sussex Drive. (1986). 2 Federal Heritage Building Review Office (FHBRO), Evaluation Report: 03-138: Single-family residence, 273 Sussex Drive. (2003). 20 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

7 CONSERVATION STRATEGY

7.1 Mitigation Options In response to the proposed redesign of Sussex Drive, several mitigation options were studied in response to the proposed street modifications and are described below:

OPTION 1: BUILDING RELOCATION ON SITE

In order to conserve the block pattern of the northwest boundary of the Lowertown West HCD, the two buildings could be moved back on their sites to accommodate the proposed street widening. This would conserve not only the two buildings but also the edge of Sussex Drive and the HCD’s boundary in a slightly modified form.

In the summer of 2010, the NCC prepared cost estimations of moving the buildings back 9 feet on their lots. Included in Appendix 9, the costs of this option are between $420,450 - $425,700 for 273 Sussex Drive, and between $737,700 - $762,700 for 275-279 Sussex Drive. The sum total for both buildings was estimated between $1,158,150 - $1,188,400.

OPTION 2: RELOCATION OF BUILDINGS TO OTHER LOT(S)

Another option would be to relocate the buildings to other vacant lands in the City of Ottawa or elsewhere. Due to the risk to the buildings’ structural integrity and the high costs and risks associated with building relocation, the NCC has not considered this option for further analysis. Furthermore, since the heritage value of the buildings are primarily related to their context within the Lowertown West HCD as Group 3 buildings (see section 3), their relocation to another vacant lot would provide little added heritage benefit.

Issued: 9 August 2012 21 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

OPTION 3: DEMOLITION OF HERITAGE BUILDINGS AND NEW CONSTRUCTION

The two existing buildings could be demolished and replaced with new buildings designed in accordance with the new design guidelines outlined in the Lowertown West HCD1. Summarized and applied to this site, the guidelines would include:

• Maintain a consistent front yard and street edge along Sussex Drive and Bolton Street;

• Maintain the general overall height of the buildings to be consistent with the adjacent buildings;

• Maintain the articulation of the individual and existing building lots;

• Establish a consistent tree planting program along the street, including considerations of species and canopy size;

• Design front yard landscaping in character with the street. Limit the use of paving;

• Maintain consistent street lighting, overhead services and surface parking along the street;

• Follow the NCC’s design objectives and guidelines with respect to Confederation Boulevard;

• Do not attempt to mimic the styles of the past. New construction to be contemporary in design and enhance the evolution of the district;

• Respect the material palette of the surrounding buildings;

• The new building on the northern site to address both Sussex Drive and Bolton Street; and

• Vehicular access drives off Sussex Drive are to be minimized.

The prominent location of the site along Sussex Drive and unobstructed views of the Ottawa River directly across the street make redevelopment a desirable option for a number of occupancy types.

The NCC’s Long Term Vision (see appendix 8) for its lands in this area and the Core Area Sector Plan of 2005 include goals to: promote an active street environment; highlight the international character and national significance of Confederation Boulevard; provide active public uses at ground floor levels; locate political, judicial and cultural institutions along Sussex Drive; and the improvement of the public realm. However, the NCC does not have a long-term development plan for the two subject properties at this time. A long-term 1 Refer to the Lowertown West HCD, sections 7.4 and 7.5.

22 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

strategy should balance the objectives of the residential character of the Lowertown West Heritage Conservation District, and the institutional character of Sussex Drive on this portion of Confederation Boulevard. Any future development of the site will also have to consider the existing land use designation of the two residential properties.

OPTION 4: DEMOLITION OF HERITAGE BUILDINGS AND PROVISION OF INTERIM LANDSCAPING

In the absence of a long-term development strategy on the subject sites, this option mitigates the loss of the two heritage buildings through an interim landscape plan until an appropriate strategy is developed. The objectives of interim landscaping on the properties would be to provide an appropriate street edge to Confederation Boulevard, to mask the side and back yards of the adjacent properties on Bolton and Cathcart Streets, to animate this portion of the street, to establish some elements of continuity in the immediate vicinity, and to facilitate visitors in taking advantage of the views across the Ottawa River. The installation of public art or the establishment of a commemorative site are both possible options. A landscape design would have to address the issue of concealing the less formal side and rear facades of the adjacent buildings that would be exposed as a result of demolition.

7.2 Recommended Conservation and Mitigation Strategies

Having evaluated various designs for the reconstruction of Sussex Drive (see Delcan report attached as Appendix 7), and having evaluated the four options as outlined in Section 7.1, the City of Ottawa and the NCC are proceeding with Option 4. This entails the demolition of the two buildings at 273 and 275-279 Sussex Drive. The NCC has advised that it is financially unviable to relocate either or both of the buildings on the site or onto another site. Hence, Options 1 and 2 are not being pursued. The NCC further advises that it has no short term plans for the redevelopment of the site. Hence, Option 3 is not viable at this time. Option 4 remains a viable alternative. According to best practices in Heritage Conservation Districts, the following would be required prior to approval of a demolition permit to enable Option 4:

Moreover, the vision for Confederation Boulevard in the 2005 Capital Core Area Sector Plan states that there should be more focus on making Confederation Boulevard a place, rather than a travel corridor. An interim landscape plan would address other NCC objectives for Confederation Boulevard such as improvements to the public realm, public art and

Issued: 9 August 2012 23 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

an international focus. For example, the landscape plan could accommodate either a commemorative site or monument, or engage the Ottawa River by taking advantage of views, or establishing an anchor to a pedestrian pathway along the river.

Prior to approval of a demolition permit, the following would be required:

• An interim landscape plan prepared by a professional landscape architect;

• More detailed historical research on the properties, including a land use history, archival photographs, maps and other information regarding the heritage resources.

Given the prominence of the site and the location at the northwest corner of the Lowertown West HCD, it is recommended that interventions on the properties:

• Contribute to the heritage character of the Lowertown West HCD and Sussex Drive;

• Establish a coherent street wall;

• Transition from the residential character of the HCD to the institutional framework of Confederation Boulevard; and

• Provide public realm improvements consistent with the NCC’s long term plan for Confederation Boulevard.

24 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

8 CONCLUSION

This report has considered the impacts of the proposed reconstruction of the Sussex Drive Bend. The preferred roadway upgrade option would require the loss or relocation of the heritage buildings at 273-279 Sussex Drive. These buildings are at the nexus of two sets of heritage policies being within the Lowertown West Heritage Conservation District (HCD) boundaries, and along Confederation Boulevard, which is identified as a cultural landscape by the NCC. The recommendations in this report recognize that there are multiple competing values and constraints of the street reconstruction project and the site and provides a mitigation strategy that seeks to ensure heritage best practices are applied to any work that is undertaken on the site.

On this basis, it is concluded that:

1. Although there is the potential for site-specific impacts on the Lowertown West HCD due to the removal of the two buildings, the proposed mitigation strategy will provide appropriate measures that negotiate the competing public interests of both the proposed Sussex Drive Reconstruction project and the existing site location within a heritage conservation district;

2. The result is consistent with the Lowertown West Heritage HCD Plan and adequately mitigates the impact of the proposed work on the cultural heritage value of the HCD.

3. The NCC’s long term plan of redeveloping this site in accordance with the 2005 Core Area Plan is appropriate.

Issued: 9 August 2012 25 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

9 BIBLIOGRAPHY

City of Ottawa Department of Planning & Development. (1992). Heritage Survey and Evaluation Form: Building File No. PD: 4300 Sussex 273.

City of Ottawa Department of Planning & Development. (1992). Heritage Survey and Evaluation Form: Building File No. PD: 4300 Sussex 275-279.

Federal Heritage Building Review Office. (1986). 275-279 Sussex Evaluation Report.

Federal Heritage Building Review Office. (2003). 273 Sussex Drive Evaluation Report.

Diamond + Schmitt Architects with Michael McClelland. (May 1993). Lowertown West Heritage Conservation District Study.

26 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

10 PROJECT PERSONNEL

MICHAEL McCLELLAND, PRINCIPAL, OAA, FRAIC, CAHP Michael McClelland, a founding principal of ERA Architects Inc., is a registered architect specialising in heritage conservation, and in particular in heritage planning and urban design. After graduating from the University of Toronto Michael worked for the municipal government most notably for the Toronto Historical Board, advising on municipal planning, permit and development applications, and on the preservation of municipally-owned museums and monuments.

Michael is well known for his promotion and advocacy for heritage architecture in Canada and in 1999 was awarded a certificate of recognition from the Ontario Association of Architects and the Toronto Society of Architects for his contribution to the built environment and to the profession of architecture.

LINDSAY REID, ASSOCIATE, OAA, CAHP, LEED AP

Lindsay is a licensed architect with more than eleven years of experience in the field of heritage conservation. She has a special interest in the conservation of our cultural institutions as well as the protection and appreciation of our modern heritage. In this area she has worked on many award-winning projects including Ruthven Park NHS, the Distillery District NHS and, as a volunteer, the 1953-2003 TSA Guide Map to post war architecture in Toronto.

She has extensive experience in all stages of building analysis, planning, municipal approvals, design, contract documents, field review and project administration for conservation and renovation projects. Lindsay’s experience also includes employment as a heritage planner for the City of Toronto. There she expanded her project management, negotiation and public consultation skills and gained a more comprehensive understanding of cultural heritage and planning policy.

Issued: 9 August 2012 27 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

JAN KUBANEK, ARCHITECT, OAQ, OAA, CAHP

Jan is a graduate of McGill University’s School of Architecture and an architect registered with the OAQ (Ordre of Architects of Quebec) and OAA (Ontario Association of Architects). He is based out of ERA’s Montreal office. With over 15 years of experience, Jan has worked on all project phases including building analysis, schematic and design development, municipal/ provincial/ federal approvals, contract documents, bidding, field review and project administration for conservation and renovation projects. His portfolio covers a wide variety of projects, such as the Union Station Train Shed, Sharon Temple, Rotman School of Management and the Munk School of Global Affairs at the University of Toronto, Cambridge City Hall, Miller House, Eglinton St. George United Church, and the West Block on Parliament Hill.

One of Jan’s main areas of interest and expertise is working closely with construction practices and traditions. He has always been drawn to the process of building, which led him to study then work in carpentry. This background has broadened and deepened his understanding of construction practices and traditions, and fostered a keen interest in the conservation of wood construction, put into practice at the Sharon Temple, the Miller House in Niagara-on- the-Lake, Cambridge City Hall and the School of Global Affairs at the University of Toronto.

SHARON HONG, PLANNER

Sharon is a Planner at ERA Architects Inc. and is a member of the Ontario Professional Planners Institute. Sharon specializes in cultural and heritage planning with a particular interest in broadening the field of heritage preservation to consider issues of multiculturalism and equity. She has been recognized by the Canadian Institute of Planners and the Asian Planning Schools Association for outstanding research pertaining to heritage conservation districts and minority narratives in North America and the emergence of local modernities in Asia.

At ERA, Sharon continues to explore how cultural development contributes to the economy, civic identity and social cohesion. Her recent projects include: Main Street South HCD for the City of Brampton, Picton HCD for Prince Edward County, a revitalization project for the Theatre District in the City of Brampton, a business strategy document for the restoration/adaptive reuse of a heritage site in the Town of Milton, and an adaptive re-use strategy for the Brodie House for the Town of Richmond Hill.

28 Issued: 9 August 2012 Cultural Heritage Impact Statement: 273-279 Sussex Drive, Ottawa

11 APPENDICES

Appendix 1: Review of Key Heritage Policy Understanding: The following, prepared by ERA, reviews policy relating to the Understanding of a historic place is an Terms of Reference for this Heritage Impact Assessment. The essential first step to good conservation practice, which is normally achieved purpose of the review is to acknowledge policy relating to through documentary and oral research the site and adjacent heritage properties. In identifying and and physical investigation[...] The in- discussing key policies, it does not represent an full extent of formation collected in this phase will be ERA’s consideration of policies, guidelines and related materials, used throughout the conservation decision making process and should remain relevant to this project. accessible.

1. Parks Canada’s Standards and Guidelines Planning:

Purpose Planning is the mechanism that links a comprehensive understanding of an A purposes of the Standards and Guidelines is to “achieve good historic place with interventions that re- conservation practice” and to establish “a pan-Canadian set of spect its heritage value. Planning should Standards and Guidelines.. [for] conserving Canada’s historic consider all factors affecting the future of an historic place, including the needs places” (Parks Canada’s Standards and Guidelines for the of the owners and users, community in- Conservation of Heritage Places in Canada, 2nd ed.). terests and the potential environmental impacts, available resources and external Principles constraints. The most effective planning and design approach is an integrated one The Standards and Guidelines are based on a sequence of steps: that combines heritage conservation with understanding, planning, and intervening. This approach allows other planning and project goals and en- for informed decision making, heritage conservation planned gages all partners and stakeholders early with regard to other planning objectives, and interventions to in the process and throughout.

realize long term, viable uses of heritage sites. Intervening:

Primary Treatment If the use of a historic place is part of its heritage value, then that use should The Standards and Guidelines described three approaches to be retained. Otherwise, a use compatible treating a heritage site: (Source: Standards and Guidelines, 2nd with its heritage value should be found. Ed, Glossary) A viable use — economic, social or sym- bolic — will better ensure the long-term Preservation: The action or process of protecting, survival of a historic place and lessen or prevent deterioration caused by environ- maintaining, and /or stabilizing the existing materials, mental and human activities. form, and integrity of a historic place or of an individual component, while protecting its heritage value. Source: Standards and Guidelines (2nd Ed, Chapter 1, The Conservation Decision Making Process)

Issued: 9 August 2012 29 The following, prepared by ERA, reviews policy relating to the Definition of Select Terms of the Provincial Terms of Reference for this Heritage Impact Assessment. The Policy Statement: purpose of the review is to acknowledge policy relating to Significant: the site and adjacent heritage properties. In identifying and [R]esources that are valued for the im- discussing key policies, it does not represent an full extent of portant contribution they make to our ERA’s consideration of policies, guidelines and related materials, understanding of the history of a place, relevant to this project. an event, or a people.

1. Parks Canada’s Standards and Guidelines Adjacent lands: [L]ands contiguous to a protected her- Purpose itage property or as otherwise defined in the municipal official plan. A purposes of the Standards and Guidelines is to “achieve good conservation practice” and to establish “a pan-Canadian set of Built heritage resources: Standards and Guidelines.. [for] conserving Canada’s historic [M]eans one or more significant build- places” (Parks Canada’s Standards and Guidelines for the ings, structures, monuments, instal- lations or remains associated with Conservation of Heritage Places in Canada, 2nd ed.). architectural, cultural, social, political, economic or military history and Principles identified as being important to a The Standards and Guidelines are based on a sequence of steps: community. These resources may be identified through designation or herit- understanding, planning, and intervening. This approach allows age conservation easement under the for informed decision making, heritage conservation planned Ontario Heritage Act, or listed by local, with regard to other planning objectives, and interventions to provincial or federal jurisdictions. realize long term, viable uses of heritage sites. Conserved: Primary Treatment [M]eans the identification, protection, use and/or management of cultural The Standards and Guidelines described three approaches to heritage and archaeological resources treating a heritage site: (Source: Standards and Guidelines, 2nd in such a way that their heritage val- Ed, Glossary) ues, attributes and integrity are retained. This may be addressed through Preservation: The action or process of protecting, a conservation plan or heritage impact maintaining, and /or stabilizing the existing materials, assessment. form, and integrity of a historic place or of an individual component, while protecting its heritage value. Restoration: The action or process of accurately revealing, recovering or representing the state of a historic place or of an individual component, as it appeared at a particular period in its history, while protecting its heritage value.

Rehabilitation: The action or process of making possible a continuing or compatible contemporary use of a historic place or an individual component, while protecting its heritage value.

2. Provincial Policy Statement The Ontario Provincial Policy Statement provides policy direction on matters of Provincial interest related to land use planning and development. The Statement “is intended to be read in its entirety and the relevant policies are to be applied to each situation” (PPS Part III).

Section 2.6 of the PPS titled “Cultural Heritage and Archaeology” provides particular direction concerning heritage sites. Policy 2.6.1 of the PPS states that “significant built heritage resources and significant cultural heritage landscapes shall be conserved”.

Policy 2.6.1 attaches two terms in association with the term “significant”, namely “built heritage resources” and “cultural heritage landscapes”.

Policy 2.6.3 of the PPS makes the following statement about development and site alterations in relation to built heritage resources:

Development and site alteration may be permitted on adjacent lands to protected heritage property where the proposed development and site alteration has been evaluated and it has been demonstrated that the heritage attributes of the protected heritage property will be conserved.

Mitigative measures and/or alternative development approaches may be required in order to conserve the heritage attributes of the protected heritage property affected by the adjacent development or site alteration. (Provincial Policy Statement (2005), Policy 2.6.3)

This Heritage Impact Assessment has been prepared according to the PPS’s definition of ‘conserved’ as a means of addressing the retention of heritage values, attributes and integrity of the abutting Heritage Conservation District. 3. Ontario Heritage Act Section 33.(1) of the Act states that:

No owner of property designated under section 29 shall alter the property or permit the alteration of the property if the alteration is likely to affect the property’s heritage attributes, as set out in the description of the property’s heritage attributes that was required to be served and registered under subsection 29 (6) or (14), as the case may be, unless the owner applies to the council of the municipality in which the property is situate and receives consent in writing to the alteration.

Section 33.(1) of the Act states that:

An application under subsection (1) shall be accompanied by a detailed plan and shall set out such information as the council may require. R.S.O. 1990, c. O.18, s. 33 (2).

This HIA has been prepared according to Council’s request for information as per Section 33 (1) of the Act.

4. City of Ottawa Official Plan Section 4.6.1 (2) outlines the terms of reference for a Cultural Heritage Impact Statement as required for the approval of any alteration, addition, partial demolition, or demolition to a structure designated under Part V of the Ontario Heritage Act:

4.6.1 Heritage Buildings and Areas

2. Where a structure designated under Part V of the Heritage Act is to be altered, added to, partially demolished, demolished, relocated, or where new construction in a district designated under Part V of the Heritage Act is proposed , the approval of City Council, after consultation with its municipal heritage committee, currently known as the Ottawa Built Heritage Advisory Committee (OBHAC) is required. If the alteration, addition, partial demolition, demolition or relocation or new construction has the potential to adversely affect the heritage conservation district, the City will require that a cultural heritage impact statement be conducted by a qualified professional with expertise in cultural heritage resources to do the following:

a. Describe the positive and adverse impacts on the heritage conservation district that may reasonably be expected to result from the proposed development; b. Describe the actions that may reasonably be required to prevent, minimize or mitigate the adverse impacts

c. Demonstrate that the proposal will not adversely impact the cultural heritage value of the Heritage Conservation District,

5. Conservation District Plan. The site is within the Lowertown West Heritage Conservation District Plan and is subject to the District’s Plan.

Guidelines for new buildings included in the Plan were considered in assessing the proposed work in relation to the character of the HCD.

6. 2005 Canada’s Capital Core Area Sector Plan. The site is located along Confederation Boulevard, which has been identified by the NCC as a small-scale cultural landscape within the Ottawa River Corridor cultural landscape. Section 3 of the Capital Core Area Sector Plan outlines policies and guidelines for Confederation Boulevard. The related heritage policies were consulted in assessing the proposed work. Appendix 2: Guidelines for the Preparation of Cultural Heritage Impact Statements in the City of Ottawa The Terms of Reference for a cultural heritage impact statement prepared in accordance with S. 4.6.1.1 and 4.6.1.2 p. 127 of the OP are detailed below:

What is a Cultural Heritage Impact Statement? A Cultural Heritage Impact Statement (CHIS) is a study that identifies the potential impacts of redevelopment and/or development on heritage resources in a particular location.

What is the purpose of a Cultural Heritage Impact Statement? The purpose of a CHIS is to identify the resources that will be affected by the development; how they will be affected; and to provide alternatives that would minimize the impacts on heritage resources. A CHIS is structured to create a foundation upon which decisions regarding appropriate conservation approaches can be made. It should identify practical options in sufficient detail to inform decisions and directions for the development.

When is a Cultural Heritage Impact Statement Required? The need for a Cultural Heritage Impact Statement can be triggered by an application under the Ontario Heritage Act or the Planning Act.

Section 2.6 of the Provincial Policy Statement (2005) requires the conservation of significant built heritage resources and significant cultural heritage landscapes. It contains policies concerning adjacency, stating that development and site alteration may be permitted on lands adjacent to protected heritage property where the proposed development and site alteration has been evaluated and it has been demonstrated that the heritage attributes of the protected heritage property will be conserved, and that mitigative measures and/or alternative development approaches may be required in order to conserve the heritage attributes of the protected heritage property affected by the adjacent development or site alteration.

The Official Plan contains policies to regulate development, alteration and demolition of heritage resources. The Official Plan policies require the preparation of a Cultural Heritage Impact Statement in the following circumstances:

• Where a structure designated under the Ontario Heritage Act is to be altered, partially demolished, demolished, or where a new building is proposed within a heritage conservation district (Section 4.6.1, Policy 1);

• Where the relocation of a structure designated under the Ontario Heritage Act is proposed (Section 4.6.1, Policy 3); • Where an owner of a designated heritage property applies for approval to demolish all or a portion of the heritage resource (Section 4.6.1, Policy 4);

• Where a development application adjacent to the Rideau River and Canal is submitted. This CHIS will be reviewed in consultation with Parks Canada and the National Capital Commission (Section 4.6.3, Policy 1a); and

• Where development proposals or public works are proposed in or adjacent to the Central Experimental Farm. Reference to the Commemorative Integrity Statement prepared by Parks Canada will ensure that the proposed development does not compromise the characteristics that represent and contribute to the Central Experimental Farm’s heritage value (Section 3.4, Policy 4).

The Official Plan also requires an applicant who proposes an alteration or addition to a building in a Heritage Conservation district is proposed, or new construction in a Heritage Conservation district, to consult the heritage conservation district study of the particular district for guidance (Section 4.6.1, Policy 2).

Who should be involved in the preparation of a Cultural Heritage Impact Statement?

Cultural Heritage Impact Statements should be prepared by qualified individuals, such as heritage, heritage planning, architectural and landscape consultants with knowledge of accepted standards of historical research, identification, evaluation, and methods of conservation and mitigation.

What is the planning process surrounding the Cultural Heritage Impact Statement?

Individually Designated Heritage Properties (Part IV of the Ontario Heritage Act)

Approval from Council is required in order to undertake any work on a heritage property that will affect its cultural heritage value.

In order to request approval, an application in writing, accompanied by a detailed plan and a Cultural Heritage Impact Statement including plans and material samples, if applicable, and all the information required to evaluate a proposed alteration is submitted. Heritage Staff in the Planning and Growth Management Branch reviews applications to determine if they meet all City requirements. Upon acceptance of a complete application, staff will review the application, and will prepare a report to be sent to the Local Architectural Conservation Advisory Committee (LACAC), Planning and Environment Committee and City Council. Council may approve the application with or without conditions, or refuse it. A permit under the Ontario Heritage Act is then issued.

The application must be dealt with by City Council within 90 days of the application having been deemed complete. Properties in Heritage Conservation Districts (Part V of the Ontario Heritage Act)

The Ontario Heritage Act specifies that all proposals for new construction or to alter the exterior appearance of properties, or demolition within a Heritage Conservation District must be approved by City Council, and a Heritage permit must be issued before any work may begin.

A complete application, including a Cultural Heritage Impact Statement, plans and material samples, if applicable, must be submitted to the City. Heritage Staff in the Planning and Growth Management Branch reviews all applications to determine if the proposed alteration meets all City requirements. Staff will prepare a report, to be sent to the LACAC, Planning and Environment Committee and City Council. Council may approve an application with or without conditions, or refuse it. If Council approves an application, a Heritage Permit will be issued.

The application must be dealt with by City Council within 90 days of the application having been deemed complete.

What should be included in a Cultural Heritage Impact Statement?

• The property address;

• A brief description of the property, its heritage attributes, and previous alterations;

• Statement of the significance of the property (historical, architectural, contextual, etc.);

• Photographs and/or drawings of the property and its context;

• An explanation of the proposed development;

• A description of the positive and adverse impacts of the proposal on the heritage resource or heritage conservation district that may reasonably be expected to result from the proposed development (4.6.1, policy 1(a));

• A description of the actions that may reasonably be required to prevent, minimize, or mitigate any anticipated adverse impacts (4.6.1, policy 1(b));

• A demonstration that the proposal will not adversely impact the cultural heritage value of the property, heritage conservation district, and/ or its streetscape/neighbourhood (4.6.1, policy 1(c));

• Identification of mitigative measures that could be undertaken, if there are negative impacts, to ensure the heritage value of the property is protected.

• Identification of intervention options;

• Identification of additional studies required (i.e. a Bracing Plan for façade retention ) What additional resources contain information to assist in the preparation of Cultural Heritage Impact Statements?

• “The Eight Guiding Principles in the Conservation of Built Heritage Properties”, published by the Ontario Ministry of Culture;

• “Standards and Guidelines for the Conservation of Historic Places in Canada”, published by Parks Canada;

• Provincial Policy Statement (2005) Info Sheet #1: Built Heritage Resources, published by the Ontario Ministry of Culture;

• Provincial Policy Statement (2005) Info Sheet #4: Adjacent Lands and Protected Heritage Property, published by the Ontario Ministry of Culture;

• Provincial Policy Statement (2005) Info Sheet #5: Heritage Impact Assessments and Conservation Plans, published by the Ontario Ministry of Culture;

• “The Venice Charter”, International Charter for the Conservation and Restoration of Monuments and Sites. Appendix 3: 273 Sussex Drive: Heritage Information Sheets from Lowertown West HCD study. Appendix 4: 275-279 Sussex Drive: Heritage Information Sheets from Lowertown West HCD study. Appendix 5: 273 Sussex Drive: FHBRO Evaluation. Appendix 6: 275-279 Sussex Drive: FHBRO Evaluation. Appendix 7: “Sussex Drive Reconstruction: Sussex Drive Bend - Road Geometry” Technical Memo by Delcan Corporation dated July 30, 2010. Appendix 8: NCC Long Term Vision, November 4, 2011 Appendix 9: Cost Estimations by the NCC for the building relocations.