Meeting 01-2020

City of Kingston Report to Heritage Kingston Report Number HK-20-003

To: Chair and Members of the Heritage Kingston From: Lanie Hurdle, Chief Administrative Officer Resource Staff: Paige Agnew, Director, Planning, Building & Licensing Services Date of Meeting: December 19, 2019 Subject: Application for Heritage Permit under the Ontario Heritage Act Address: 76 Stuart Street (P18-355) File Number: P18-069-2019

Council Strategic Plan Alignment:

Theme: Regulatory & compliance

Goal: 3.2 Enhance public safety through active transportation and a focus on pedestrian access and enforcement.

Executive Summary:

The application is requesting approval to undertake significant masonry work to remove and reconstruct the main entrance limestone stairwell and knee wall on the main floor porch of Watkins Wing, Kingston General Hospital (Part IV Designation).

The intention is to reinstate the stairwell, including steel handrail, to its original configuration, including salvage and/or repair of existing materials for re-use, where possible.

The stairs have experienced a high level of deterioration and have been identified as hazardous.

The stairwell and associated knee walls are significant features that contribute to the building’s heritage value, and should be reinstated to help preserve this valued heritage resource.

Upon review of all the submitted materials, as well as applicable policies and legislation, staff recommend approval of the proposed scope of work, subject to the conditions outlined herein.

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Recommendation:

That Heritage Kingston recommends to Council:

That alterations to the property at 76 Stuart Street (Watkins Wing), be approved in accordance with the details described in the application (File Number P18-069-2019), which was deemed complete on Friday, November 8th, 2019, with said alterations to include the deconstruction, repair (as required) and reinstallation of all stairwell elements, to match the feature’s original configuration; and

That the approval of the erection be subject to the following conditions:

1. All masonry work shall be completed in accordance with the City’s Policy on Masonry Restoration in Heritage Buildings;

2. A Building Permit shall be obtained for reconstruction works. The application is to include a commitment to review from the project engineer and stamped drawings;

3. An Encroachment Permit shall be obtained, as required;

4. Existing material shall be salvaged and re-used to the greatest extent possible; and

5. Ensure any impact to exiting is reviewed with KGH and alternative arrangements are made including a temporary amendment to their existing fire safety plan, as required.

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Authorizing Signatures:

Lanie Hurdle, Chief Administrative Officer

Consultation with the following Members of the Corporate Management Team:

Peter Huigenbos, Acting Commissioner, Community Services Not required

Brad Joyce, Acting Commissioner, Corporate Services Not required

Jim Keech, President & CEO, Utilities Kingston Not required

Desirée Kennedy, Chief Financial Officer & City Treasurer Not required

Sheila Kidd, Commissioner, Transportation & Public Works Not required

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Options/Discussion:

Description of the Application The subject portion of the property at 76 Stuart Street is located on the south side of Stuart Street and relates to the Watkins Wing of the Kingston General Hospital.

The subject property is located on the south side of Stuart Street, between Barrie Street and University Avenue. The property is part of the Kingston General Hospital, a National Historic site designated under Part IV of the Ontario Heritage Act. The property contains a number of 19th century limestone heritage buildings, including the subject of focus, Watkins Wing. The Watkins Wing, which includes portions of the original hospital building, was built in 1833 and enlarged in 1862. The building is a four-storey limestone structure and remains an active part of the hospital.

Application (File Number P18-069-2019), with regard to the Watkins Wing/Main building, is requesting approval to deconstruct, repair and reinstate the main stairwell to its original configuration. The intent of the alteration is to once again make the stairwell safe and functional, while reconstructing the feature to its original reconfiguration so as to conserve the building’s heritage value.

An engineering report, prepared by Fishburn Sheridan and Associates Limited, was submitted in support of this application (Exhibit C). The report notes that “the stairs leading to the entrance of Watkins Wing have experienced a high level of deterioration resulting in what has been identified as a hazard to building users.” It is believed that water infiltration and freeze/thaw cycles have contributed to the deterioration of the stairwell and knee wall. It is apparent that repairs have been made over the years, by means of repointing or application of additional mortar, to help preserve the feature’s worsening condition. However, many foundational stones have cracked and/or broken away, and the stair treads have deteriorated to the point where replacement has become necessary.

The applicants are proposing to repair and/or replace the existing stones used in the stairwell and knee wall, including additional treatments to ensure the longevity of the feature that include;

• Installation of a reinforced concrete foundation (including application of waterproof membrane to all exposed faces), • Stair treads reinstalled and/or replaced (where deteriorated) with similar limestone material (including bush hammered finish on exposed faces), • Stair knee walls reinstalled to their original configuration, using existing salvaged stones, doweled into the top surface to ensure stability, • Stair side wall stones, reinstalled or replaced (where deteriorated) with new materials to suit the original stair configuration. New materials to receive bush hammered finish to match existing stone (as required), • Landing knee wall stones will be repaired and reset in original locations. Provision will be made at the surface of the landing to provide a means of drainage from the landing

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side of the stone wall in order to prevent additional infiltration of water into the stone and mortar joints, and subsequent damage from freeze-thaw cycles. Treatment might entail some form of inconspicuous drainage tubes installed through the mortar joints of the landing knee wall. Drainage detail yet to be confirmed.

• Existing hand rail will be removed and reinstated following completion of masonry work.

It shall be noted that the condition and configuration of the current stone foundation is unknown, as there are no original construction drawings for the building and no records of previous repair to the stairs. Therefore, design modification may be required depending on what conditions are found during the course of deconstruction.

All of the repointing/masonry works should be completed in conformity to the City’s Masonry Policy. Upon review of all of the submitted materials, as well as applicable policies and legislation, staff recommend approval of the proposed applications, subject to the conditions outlined herein.

All submission materials are available online through the Development and Services Hub (DASH) at the following link, DASH, using “Look-up a Specific Address”. If there are multiple addresses, search one address at a time, or submission materials may also be found by searching the file number.

This application was deemed complete on November 8, 2019. The Ontario Heritage Act provides a maximum of 90 days for Council to render a decision on an application to alter a heritage building under Section 42(4). This timeframe will expire on February 6, 2020.

Reasons for Designation The subject property was designated under Part IV of the Ontario Heritage Act in 1984 through By-Law Number 84-275. The subject property was recognized as a National Historic Site of Canada in 1995. The buildings included in the National Historic Site designation are the original hospital building (Main Building, 1833-5) and its two lateral wings (The Watkins Wing, 1862 and the Nickel Wing, 1890-1), the Fenwick Operating Theatre (1895), the Doran Building (1892-4), the Ann Baillie Building (1903-4) and the Empire Wing (1914; 1924-4).

The designating by-law under the Reasons for Designation notes:

“The central, original section of Thomas Rogers’ hospital building 1833-1835, now a National Historic Site, served as the Parliament Building from 1841 to 1843, and since 1845 has been the Kingston Hospital.”

According to an excerpt on the property from Canada’s Historic Places (Exhibit B), “the Kingston General Hospital was designated as a national historic site in 1995 for three reasons;

• It is the oldest public hospital in Canada still in operation with most of its buildings intact and thus effectively illustrates the evolution of health care in Canada in the 19th and 20th centuries;

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• The Main Building and the Watkins Wing are noteworthy for their lengthy association with the origins of hospitals as institutions of poor relief in the pre-Confederations era; and, • The Nickle Wing, Doran Building, Fenwick Opening Theatre, Ann Baillie Building, and the Empire Wing chronicle the transformation of charitable hospitals into centres of scientific medicine during the 1880-1920 period.

Cultural Heritage Analysis Key elements associated with the value of the KGH (as noted in Exhibit B), pertaining to the Watkins Wing include; “-the classical design, domestic proportions and limestone construction of the Main Building and the Watkins Wing -the limestone construction of exteriors of the late-19th and early-20th century buildings, maintaining the architectural character set by earlier hospital buildings;”

The stairwell, although showing signs of repair over the years, has remained virtually unaltered and remains a key heritage attribute of this building that reflects the original design of the hospital.

Conclusion Heritage Planning staff are of the opinion that the proposal conforms to the heritage conservation objectives set out within the City of Kingston’s Official Plan, the Ministry of Tourism, Culture and Sports’ ‘Eight Guiding Principles in the Conservation of Built Heritage Properties’, and Parks Canada’s ‘Standards and Guidelines for the Conservation of Historic Places in Canada’. Broadly, the application will:

City of Kingston ‘Official Plan’, achieve; Section 7.0: Conserve and enhance built heritage resources within the city so that they may be accessed, experienced and appreciated by all residents and visitors, and retained in an appropriate manner and setting, as a valued public trust held for future generations.

‘Eight Guiding Principles in the Conservation of Built Heritage Properties’ (Ministry of Tourism, Culture and Sport), achieve;

Principle Number 3 – Respect for Historic Material: Repair/conserve – rather than replace building materials and finishes, except where absolutely necessary. Minimal intervention maintains the heritage content of the build resource.

Principle Number 4 – Respect for original fabric: Repair with like materials. Repair to return the resource to its prior condition, without altering its integrity.

‘Standards and Guidelines for the Conservation of Historic Places in Canada’ (Parks Canada), achieve;

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Standard 1: Conserve the heritage value of an historic place. Do not remove, replace or substantially alter its intact or repairable character-defining elements. Do not move part of an historic place if its current location is a character-defining element. Standard 7: Evaluate the existing condition of character-defining elements to determine the appropriate intervention needed. Use the gentlest means possible for any intervention. Respect heritage value when undertaking an intervention.

Standard 8: Maintain character-defining elements on an on-going basis. Repair character-defining elements by reinforcing their materials using recognized conservation methods. Replace in kind any extensively deteriorated or missing parts of character defining elements, where there are surviving prototypes.

Standard 9: Make any intervention needed to preserve character-defining elements physically and visually compatible with the historic place and identifiable on close inspection. Document any intervention for future reference.

Standard 10: Repair rather than replace character-defining elements. Where character- defining elements are too severely deteriorated to repair, and where sufficient physical evidence exists, replace them with new elements that match the forms, materials and detailing of sound versions of the same elements. Where there is insufficient physical evidence, make the form, material and detailing of the new elements compatible with the character of the historic place.

Previous Approvals P18-355-059-2011: Window replacement P18-355-012-2013: Install four free standing exterior signs along Stuart Street P18-355-024-2013: Window replacement P18-355-077-2014DA: Replace roofing P18-355-035-2015DA: Replace roofing P18-031-2016: Repair / replacement of concrete balcony slabs on Watkins Wing P18-055-2018: Masonry re-pointing and stone repairs on North-East, East and South elevations of Watkins Wing

Comments from Departments and Agencies This application was circulated to a number of internal departments who provided the following comments:

Building: A Building Permit will be required for the reconstruction works. The application is to include a commitment to review from the project engineer and stamped drawings.

Fire: Work on the stair may impact exiting for persons during an emergency. Ensure any impact to exiting is reviewed and alternative arrangements are made including a temporary amendment to the existing fire safety plan may be required.

Consultation with Heritage Kingston

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Heritage Kingston was consulted on this application through the Development and Services Hub (DASH) system. The Committee’s comments have been compiled and attached as Exhibit D.

Responding members primarily noted that repairs identified through this application are necessary and welcomed.

A concern was noted from one respondent about the extent of intervention proposed, suggesting that repair objectives may be achieved using a more gentle approach. The member recommends that the Contractor charged with the work consult with Paul Everett (EPG Ltd.), for opinion on how to salvage & reconstruct an existing stairwell, noting Jackson Hall as a successful precedent.

Existing Policy/By-Law:

Standards and Guidelines for the Conservation of Historic Places in Canada (Parks Canada) Ontario Heritage Act, R.S.O. 1990, C. O.18. (Province of Ontario) City of Kingston Official Plan

Notice Provisions:

Pursuant to Section 42(3) of the Ontario Heritage Act (OHA), notice of receipt of a complete application has been served on the applicant.

Accessibility Considerations:

None

Financial Considerations:

None

Contacts:

Andrea Gummo, Acting Manager, Policy Planning 613-546-4291 extension 3256

Brendan McKee, Planner, Heritage 613-546-4291 extension 3251

Other City of Kingston Staff Consulted:

The application was circulated to a number of internal departments for review and all comments have been incorporated.

Exhibits Attached:

Exhibit A Context Map & Photographs

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Exhibit B Property Inventory Evaluation Form for 180 & 194 Bagot Street and 2014 Heritage Impact Statement, prepared by A. Scheinman

Exhibit C Concept Plans and Previously Approved Concept Plans

Exhibit D Correspondence Received from Heritage Kingston

Exhibit E Summary of Final Heritage Kingston Comments

62 Exhibit A Report Number HK-20-003

Context Map

Subject Property Lower University Ave

63 Exhibit A Report Number HK-20-003

76 Stuart Street

Location of Proposed Work

64 Exhibit A Report Number HK-20-003

Current View – South (from Stuart St)

Location of Proposed Work Google 2019

65 5/12/2016 HistoricPlaces.ca - HistoricPlaces.ca Exhibit B Report Number HK-20-003

Kingston General Hospital National Historic Site of Canada

76 Stuart Street, Kingston, Ontario, Canada

Formally Recognized: 1995/11/24

General view. Empire Wing East and North elevations.

OTHER NAME(S)

Kingston General Hospital National Historic Site of Canada Kingston General Hospital Hôpital général de Kingston Hôpital général de Kingston

LINKS AND DOCUMENTS

Web site about the Museum of Health Care at the Kingston General Hospital

CONSTRUCTION DATE(S) 1833/01/01 to 1924/01/01 LISTED ON THE CANADIAN REGISTER: 2006/01/17

STATEMENT OF SIGNIFICANCE

DESCRIPTION OF HISTORIC PLACE

Kingston General Hospital National Historic Site of Canada is a complex of limestone hospital buildings of classically inspired design, built between 1833 and 1924. The seven interconnected buildings that make up the national historic site are set within a larger hospital campus of post-1924 buildings, known as Kingston General Hospital. The hospital is located in the city of Kingston, on the southern edge of Queen’s University Campus and adjacent to Lake Ontario. The original hospital building (Main Building, 1833-5) and its two lateral wings (the Watkins Wing, 1862; and the Nickle Wing, 1890-1) face northward onto Stuart Street. A semi-circular building housing a 19th-century operating amphitheatre (Fenwick Operating Theatre, 1895) is adjoined to the rear of the Main Building. Behind these buildings are a late- 19th-century maternity hospital (Doran Building 1893-4), an early-20th-century nurses’ residence (the Ann Baillie Building National Historic Site of Canada, 1903-4) and an early 20th-century wing of private and semi-private rooms (the Empire Wing, 1914; 1923-4). Most of the buildings are directly adjoined or connected by passageways. Some are also adjoined or connected to other more recent hospital buildings. The arrangement of buildings has created an informal courtyard at the rear of the Main Building. The formal recognition is confined to the seven identified buildings on their footprints.

HERITAGE VALUE

Kingston General Hospital was designated a national historic site in 1995 for three reasons: - It is the oldest public hospital in Canada still in operation with most of its buildings intact and thus effectively illustrates the evolution of health care in Canada in the 19th and 20th centuries; - The Main Building and the Watkins Wing are noteworthy for their lengthy association with the origins of hospitals as institutions of poor relief in the pre-Confederation era; and

- The Nickle Wing, Doran Building, Fenwick Opening Theatre, Ann Baillie Building, and the Empirehttp://www.historicplaces.ca/en/rep-reg/place-lieu.aspx?id=4218&pid=0

66 1/4 5/12/2016 HistoricPlaces.ca - HistoricPlaces.ca Exhibit B Report Number HK-20-003 - The Nickle Wing, Doran Building, Fenwick Opening Theatre, Ann Baillie Building, and the Empire Wing chronicle the transformation of charitable hospitals into centres of scientific medicine during the 1880-1920 period. The seven buildings comprising the Kingston General Hospital National Historic Site illustrate the evolution of hospitals in Canada from 19th-century charitable institutions, to 20th-century centres for scientific medicine. The Main Building of Kingston General Hospital was the third, purpose-built, public general hospital in Canada and is the oldest one still operating as part of a modern hospital.

In the early 19th century, the sick usually were cared for at home. Charitable institutions cared for the destitute sick. The Main Building of Kingston General Hospital was built in 1833-5 to provide a permanent charitable hospital. Its domestic scale and design reflected the early-19th century preference for home-like settings. It also served as Parliament for the United Canadas for several years, before opening as a hospital in 1845. The Watkins Wing, added in 1862, provided additional patient space and reflected advances in the care and treatment of the sick and in public attitudes, providing isolation wards for smallpox cases, wards for paying patients, and a surgery/lecture room for instructing medical students.

The Nickle Wing, added in 1890-1, provided isolation units for patients with infectious disease, and accommodation for nurses and students of the nursing school established at the hospital in 1886. The Doran Building, built in 1894, provided separate facilities for maternity patients, gynaecology, and children. Its pavilion-style design and interior finishes responded directly to the use of isolation, asepsis and antisepsis to prevent infection. Its surgery reflected a renewed emphasis on surgical procedure in obstetrics and gynaecology. The Fenwick Operating Theatre, added in 1895, provided an operating amphitheatre with seats for observers, reflecting the growing importance of surgeons and medical training and the need for a sterile, well-lit environment. It is the only extant pre-1920 operating amphitheatre in Canada. The construction of the nurses’ residence (Ann Baillie Building) in 1904 to plans by William Newlands reflected the critical importance of nurses at the hospital and the success of the nursing school. The construction of the Empire Wing with private and semi-private rooms in 1912-14, and its subsequent expansion, reflected the increasing proportion of paying patients and the acceptance of hospitals by the well-to-do.

Source: Historic Sites and Monuments Board of Canada, Minutes, November 1995 and November 1989.

CHARACTER-DEFINING ELEMENTS

Key elements associated with the heritage value of Kingston General Hospital as a charitable institution for the care of the destitute and sick during the pre-Confederation era include:

- the classical design, domestic proportions and limestone construction of the Main Building and the Watkins Wing; - features of the Main Building, including its low, hipped roof punctuated by massive chimneys, its identical front and rear facades with a frontispiece on each, and its large windows and balconies on each storey to provide cross-ventilation. Key elements associated with the heritage value of the Kingston General Hospital’s association with the evolution of hospital care in Canada and as a centre of scientific medicine during the 1880-1920 period include: - the sober design and classical features of the Nickle Wing, Doran Building, Fenwick Operating Theatre, Ann Baillie Building and Empire Wing, including their low, hipped roofs with large chimneys, pedimented frontispieces on the Nickle Wing, Doran Building and Empire Wing, and a monumental, columned portico on the Ann Baillie Building; - the limestone construction or exteriors of the late-19th century and early-20th century buildings, maintaining the architectural character set by earlier hospital buildings; - the decorative detailing of the Nickle Wing, restricted to the stonework around the entrance and the circular windows on either side; - features of the Doran Building that typify a ‘pavilion hospital’, including the rectangular plan, two-storey height, former sunporches, and numerous windows;

- features of the Fenwick Operating Theatre (1895), including its semi-circular plan, two-storey height, and physical connection to the Main Building; - the Ann Baillie Building, including its two-storey height and cross-axial plan, hammer-dressed67 http://www.historicplaces.ca/en/rep-reg/place-lieu.aspx?id=4218&pid=0 2/4 5/12/2016 HistoricPlaces.ca - HistoricPlaces.ca Exhibit B Report Number HK-20-003 limestone exterior, string courses delineating each storey, and its monumental portico of Beaux-Arts inspiration, with classical, stone columns and pilasters, and wooden balustrades; - surviving original interior features of the Ann Baillie Building, including the cross-axial plan, original layout and partitions, plain plaster walls, and fireplace in the main floor sitting room; - features of the Empire Wing that typify a ‘pavilion hospital’, including its separation from other buildings, the long, rectangular plan, its three storey height and raised basement, and the brick passageway connecting it to the Main Building, designed to isolate patient wards from operating rooms; - surviving original interior features of the Empire Wing, including the layout, with private rooms arranged on either side of a central corridor, and an elevator - passageways between buildings; - renovations to the Main Building and the Watkins Wing undertaken in 1929-31 reflecting the 20th century trend towards monumentally scaled, integrated hospital blocks, including additional storeys, an addition adjoining the Watkins Wing to the Doran Building, limestone exteriors on the new additions, remodelled balconies on the Main Building, and surviving original interior finishes and partitions.

RECOGNITION

JURISDICTION

Federal

RECOGNITION AUTHORITY

Government of Canada

RECOGNITION STATUTE

Historic Sites and Monuments Act

RECOGNITION TYPE

National Historic Site of Canada

RECOGNITION DATE

1995/11/24

HISTORICAL INFORMATION

SIGNIFICANT DATE(S)

n/a

THEME - CATEGORY AND TYPE

Building Social and Community Life Education and Social Well-Being Expressing Intellectual and Cultural Life Architecture and Design

FUNCTION - CATEGORY AND TYPE CURRENT Health and Research Hospital or Other Health Care Institution

HISTORIC

ARCHITECT / DESIGNER

n/a

BUILDER

n/a

ADDITIONAL INFORMATION

LOCATION OF SUPPORTING DOCUMENTATION 68 http://www.historicplaces.ca/en/rep-reg/place-lieu.aspx?id=4218&pid=0 3/4 5/12/2016 HistoricPlaces.ca - HistoricPlaces.ca Exhibit B

National Historic Sites Directorate, Documentation Centre, 5th Floor, Room 89, 25 Eddy Street, Report Number HK-20-003 Gatineau, Quebec

CROSS-REFERENCE TO COLLECTION

FED/PROV/TERR IDENTIFIER

861

STATUS

Published

RELATED PLACES n/a

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69 http://www.historicplaces.ca/en/rep-reg/place-lieu.aspx?id=4218&pid=0 4/4 Exhibit C Report Number HK-20-002

2019-11-06 FSA Project #: 19285DK

City of Kingston 1211 John Counter Boulevard, 216 Ontario Street Kingston, ON K7L 2Z3

Attention: Ryan J. Leary, RPP, MCIP, CAHP Senior Planner, Heritage, Planning, Building & Licensing Services

Subject: Watkins Wing Entrance Stair Reconstruction Kingston General Hospital

Dear Mr. Leary,

As requested, Fishburn Sheridan Kingston Inc. (FSA) is providing the following report to the planning department in support of our request to make improvements to the main entrance limestone stairwell at Kingston General Hospital, Watkins Wing.

Background

Watkins Wing is one of the primary wings of Kingston General Hospital (KGH). KGH is a health care facility, operated and maintained by Kingston Health Sciences Centre. Watkins Wing has a limestone block composite wall structure, mainly rectangular in layout, with adjacent connecting wings. The wing was constructed in 1863.

Over the course of its life the stairs leading the entrance of Watkins Wing have experienced a high level of deterioration resulting in what has been identified as a hazard to building users. The stairs are constructed of limestone slab treads and limestone knee wall guards with large stone caps. In the center of the stair there is a steel handrail, which will be reinstated upon completion of the project. The condition and configuration of the stair foundation is unknown as there are no available original construction drawings for the building and no records of previous repairs or other work on the stairs. In addition to the stairs, the existing knee wall on the main floor porch will also be deconstructed, repaired as required and reinstated to its original configuration.

Methodology

FSA conducted a visual assessment of the stairs and landing knee walls, focusing on stone condition. The landing knee walls were observed to have enlarged mortar joints, likely the result of years of water infiltration and freeze/thaw cycles. Repairs have been made by repointing or application of additional mortar. Some of the large stones have experienced damage in the form of cracks, however it is anticipated that once removed those stones will be able to be repaired. The stair knee walls were also observed to have enlarged mortar joints. It is the belief that these joints have enlarged as a result of water infiltration, freeze/thaw cycles and decades of frost heave on the stairwell itself. The stair walls appear to be approximately 76mm out of level over the length of the walls. In addition the smaller face stones of the walls are in a state of advanced deterioration, which will require most of them to be replaced – both as a result of their condition and to suit the conditions once the stairs and cap stones are reinstalled. The stair treads were observed to be deteriorated beyond their effective and safe use. All of the stones are cracked, broken and/or have portions of the stones missing.

T: F: 70