Final Report HISTORIC EAST CALGARY LOCAL AREA PLAN PEER REVIEW NOVEMBER 11, 2020

1. Introduction...... 4 2. Planning and Urban Design Context...... 9 3. Draft Historic East Calgary LAP Review...... 27 4. Built Form Analysis...... 37 5. Conclusions and Recommendations...... 55

CONTENTS 1 INTRODUCTION Urban Strategies was retained by the Inglewood Business Improvement Area (BIA) to undertake a peer review of the Draft East Calgary Historic Communities Local Area Plan (LAP), as it applies to the height and massing of future development in the 9th Avenue SE commercial corridor. We initiated our analysis of the corridor and its surroundings in May 2020, in the context of the Historic East Calgary Area Redevelopment Plan Recommendations Report, prepared by B&A Planning Group (November 27, 2019). Our study concluded in the fall of 2020, and our recommendations respond directly to the Draft LAP released on June 16, 2020.

We understand that planning for Inglewood is complex and SE, and recommends policies and guidelines for the corridor. The contentious given its rich history, its desirability as a place to live commentary and recommendations of this report are based on: and run a business, and increasing development pressure in the • an analysis of 9th Avenue SE’s existing attributes and area. There appears to be widespread agreement on the value of defining characteristics; the neighbourhood from a historic and cultural perspective, and • a review of the higher-level land use policies in Calgary’s there appears to be acceptance that Inglewood should continue Municipal Development Plan that apply to the corridor; to grow and evolve. Where there is not consensus is on how • an analysis of the impacts of different potential built form growth should occur, specifically what form it should take in the scenarios for the corridor; and 9th Avenue SE corridor. • our experience in Canadian communities similar to This report includes a professional planning and urban design Inglewood. opinion on whether or not the Draft LAP provides adequate and We respectfully submit our commentary and recommendations in appropriate guidance for future development along 9th Avenue the hope that it will inform revisions to the LAP and aid in ongoing planning for 9th Avenue SE.

URBAN STRATEGIES INC. 5 1.1 Report Purpose and Scope

The primary purpose of this study is to assess the potential In providing a professional third-party opinion on built form impacts of proposed Local Area Plan policies on Inglewood, aspects of the draft ARP on 9th Avenue SE, the scope of work for specifically as they relate to the 9th Avenue SE corridor. The this report has not been designed to include broad stakeholder analysis and recommendations focus on existing and potential or public input. Nevertheless, we did review prior public future built form within the corridor, recognizing broader planning comments on planning initiatives for the area and met with active objectives for the area, including intensification. Policies not developers, the local Councillor, and planning staff to understand related to built form that apply to the area have been considered, their perspectives and plans for the corridor. While consultation as applicable, for context, but are not part of this assessment. is an integral component of any planning process, we This report considers whether the Draft LAP’s policies, together understand that balancing stakeholder interests has been and with the Guidebook for Great Communities, respond appropriately will continue to be addressed through City of Calgary planning, to the unique characteristics of 9th Avenue SE and provide engagement and decision-making processes. This report and its sufficient guidance for future development. recommendations are based on a focused technical planning and urban design analysis of 9th Avenue SE.

6 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 1.2 Study Area

The study area for this report includes the 9th Avenue SE corridor, between the Elbow River and Blackfoot Trail SE. The opposite side of each block, along 8th Ave SE and 10th Ave SE have been included in the study area in order to consider appropriate transition to the surrounding low-rise residential community. While the urban design analysis is limited to 9th Avenue SE, the heritage context study includes heritage resources outside of the primary study area.

Study Area Figure 1: Study Area

URBAN STRATEGIES INC. 7 1.3 Approach and Methodology

Established communities need to continue to grow and evolve The process for the Historic East Calgary LAP Peer Review 2. Analysis and Recommendations to remain prosperous, liveable and sustainable. In every comprised two phases: Canadian city, this means encouraging intensification and the a. An existing conditions analysis examined various redevelopment of underutilized land to diversify housing and aspects of the urban fabric of the neighbourhood. This 1. Background and Context Review employment opportunities; encouraging active transportation and analysis allowed us to understand the corridor’s defining the use of public transit; and giving vitality to commercial areas a. Meetings with City Staff, Ward 9 Councillor, and features and characteristics. These include parks and and public spaces. These common goals have informed this applicants with currently proposed developments in the broader public realm, transportation networks, land review of the Historic East Calgary LAP. the study area. The purpose of these meetings was use and active frontages, and existing building heights. to introduce the project, gather relevant background Intensification can and should build upon the existing assets b. A soft sites analysis identified potential and anticipated information, and answer questions. Note that not all of a community. Built heritage is often the most significant and redevelopment sites for modeling future built form proponents with development applications in the study valued asset, essential to a community’s character and sense scenarios. While not predicting if and when the sites will area were available to meet with the project team. of place, and often critical to its economic success. In the redevelop, the analysis paints a reasonable picture of case of historic main streets, like 9th Avenue SE, culturally and b. Review of policy and development context, including where future intensification may occur over time. architecturally significant structures and open spaces should be Calgary’s Municipal Development Plan, draft Guidebook c. A built form analysis involved modeling and assessing a conserved to retain the community’s distinct identity. Beyond for Great Communities, Historic East Calgary Area series of built form scenarios, building on an understanding that, redevelopment and intensification should maintain the Redevelopment Plan Recommendations Report of the existing and planned context and policy directions for urban design qualities of the street, including a pedestrian-scale (November 2019), and Draft Historic East Calgary Local the area. These scenarios were assessed based on their environment, which, together with the businesses and other uses Area Plan (2020). along the street, are what draw people to them in the first place. fit within the existing and “zoned” context, on impacts to Often, as is the case in Inglewood, there are opportunities for c. An inventory of heritage assets was developed by pedestrian comfort, views and overall experience, and on greater intensification away from the main street, where it will assessing the heritage value of the study area according impacts to properties to the rear. have minimal adverse impacts and can be used to create new to the City of Calgary’s criteria of significance, as used by d. Built form recommendations are provided based on places. the City of Calgary. the built form analysis. These guidelines are intended d. Building a base 3D model using City of Calgary data, as general urban design recommendations for built form including massing models for proposed developments if along the 9th Avenue SE corridor, with the understanding made available by the applicant. Some applicants did not that each development proposal may require a more site- respond to requests for massing models, in which case specific and detailed approach. these models were constructed from publicly available e. A strategy and tools are also recommended for the information. conservation of significant heritage in the 9th Avenue SE corridor, recognizing that this is a key community and City objective.

8 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 2 PLANNING & URBAN DESIGN CONTEXT

URBAN STRATEGIES INC. 9 2.1 History

For millennia the west end of the 9th Avenue SE corridor, at the confluence of the Bow and Elbow rivers, served as a significant navigational intersection and stopping place for First Nations people, and later evolved as an important centre for encampments and trade. In 1875 the Hudson’s Bay Company (HBC) and the North West Mounted Police (NWMP) built their forts on the east and west banks of the Elbow. These forts became a nucleus for European and Métis settlement, and the HBC trading post represents 9th Avenue’s earliest commercial build-out. In the early 1880s landowners Irvine and Stewart registered the first subdivision in East Calgary naming 9th Avenue SE ‘Atlantic Avenue’, its commercial main street—and briefly Calgary’s original town centre.

Figure 2: Alexandra School, 1912 | Glenbow Archives In 1887 Wesley Orr registered his subdivision, promoting it as The busy 9th Avenue SE east-west traffic corridor has also the municipality’s first industrial area. Five years later Alfred been an important transportation route for over a century. The E. Cross erected the Calgary Brewing & Malting Co. at the east most intense period of commercial development followed the end of 9th Avenue SE. For a while the surrounding residential introduction of the ‘Red Line’ streetcar line in 1909. From the area took the name ‘Brewery Flats’ and homes for the families 1920s the corridor became part of the first east-west highway of workers in early East Calgary industries were built on 8th through Calgary and automobile-related businesses began Avenue SE and 10th Avenue SE. 9th Avenue SE also became an appearing by the mid-1930s. This trend increased significantly important central street in Inglewood, and institutional buildings during Alberta’s Post-war economic oil boom and continued like schools and churches were erected. In the 1930s AE Cross through the 1950s, when the street was almost fully developed. contributed the 1932 public gardens fronting the brewery and the 1936 Inglewood Lawn Bowling Club to the community.

Figure 3: Atlantic (9th) Ave looking west, 1935 | Glenbow Archives

10 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 2.2 The 9th Avenue SE Corridor Today

Ninth Avenue SE today is a successful commercial corridor, with an eclectic mix of retail, restaurant and other commercial uses that draw visitors from across the city.

Ninth Ave SE’s historic, low-rise character has largely been maintained, with most buildings in the range of 1-4 storeys (see Figure 7), with multi-storey buildings containing office space or apartments above ground-floor retail space. The corridor features a fine-grain lot pattern, and generally consistent, human-scale street wall, although there are remaining gaps, including surface parking lots and auto-oriented uses. Nearly all of the properties along 9th Avenue SE have a consistent depth of approximately 37 metres and back onto residential properties containing detached homes, many of them historic. Two City parks, Jack Long and Mills, anchor the east and west ends of the corridor, respectively.

More recent development along the 9th Avenue SE Corridor has generally maintained and contributed to the human-scale environment of the corridor with minimal impact on community character while intensifying the area. West of 11th Street SE, mixed-use buildings of 5-7 storeys have recently been built, and a 6-storey building is nearing completion at 9th Avenue SE and 13th Street SE. The generally small parcel sizes in the area have meant that more recent development has typically occurred through lot assembly, where small sites are combined to create larger, more viable redevelopment sites.

The following pages provide a summary of 9th Avenue SE through a variety of lenses: Mobility, Streetscape, Street Edge, Height, Land Use, Heritage, and Redevelopment Potential.

URBAN STRATEGIES INC. 11 2.2.1 MOBILITY

Ninth Avenue SE’s location within the city and its multi-modal accessibility are fundamental to its success as a destination and make this corridor a logical and desirable place for intensification. Ninth Avenue SE and 12th Street SE effectively provide the only road access to Inglewood. The former is also a key vehicular connection to Downtown Calgary from Blackfoot Trail, and 12th Street SE and 11th Street SE provide north- south access from Memorial Drive to East Calgary’s Highfield industrial area. Three bus routes running along 9th Avenue SE provide convenient access to and from Downtown. These will be complemented by Stage 1 of the Green Line LRT Project, expected to be completed by 2026, which will include a station a few hundred metres south of 9th Avenue SE, at 12th Street SE (see Figure 4).

As a Neighbourhood Boulevard within the City’s hierarchy of roads, 9th Avenue SE is one of Calgary’s most important pedestrian and cycling corridors. Planned streetscape improvements, including additional traffic signals, curb bump- outs, bus shelters, cycling facilities, and new paving, street trees and furnishings, will contribute to a safer and more inviting environment for walking and biking.

Figure 4: Transportation

Collector Road Bus Route Trail/Bike Path Existing Signalized Intersection

Neighbourhood Boulevard Future LRT Cul-de-sac Proposed Signalized Intersection Local Road Future LRT Station Future LRT Station Proposed Pedestrian Crossing Study Area

12 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 2.2.2 PUBLIC REALM

Jack Long Park and Mills Park book-end the 9th Avenue SE corridor and planned streetscape improvements highlight the importance of this community to the city. As outlined in the 9th Avenue SE Streetscape Master Plan, these improvements include an increased public realm, improved tree canopy and health, and increased north side areas to maximize sun exposure.

Figure 5: Public Realm

Parks Institutional/Cultural Buildings Trail/Bike Path

Private Green Space Existing Streetscape Improvement Proposed Cycle Track Study Area Proposed Streetscape Improvement

URBAN STRATEGIES INC. 13 2.2.3 STREET EDGE

Most buildings along 9th Avenue SE are situated along the street edge, with active uses along the much of the corridor contributing to an animated, interesting and walkable streetscape. However, there are a number of commercial uses that are set back from the street and do not frame the public realm, as well as gaps in the street wall. While acknowledging that the eclectic character is an important characteristic of this community, more active frontages would contribute to a more pedestrian friendly streetscape. There are numerous opportunities to fill in gaps in the street wall throughout the corridor.

Figure 6: Street Edges

Study Area Existing Active Frontage Missing Active Frontage

14 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 2.2.4 HEIGHT

Building heights in the study area generally within the 1-3 storey range, with some more recent development in the 4-7 storey range. While the community features an eclectic character that contributes to its desirability, buildings generally fall within this pedestrian-friendly, neighbourhood main street height range. This height range was incorporated into Direct Control Bylaw No. 1Z93, which is largely based on the development guidelines C-2 (20) District of the former City of Calgary Land Use Bylaw 2p80. Many recent developments along the 9th Avenue corridor have met the general intent and guidelines of the bylaw, with most land use bylaw amendments allowing relatively minor variations in height up to 23 metres.

Figure 7: Building Heights

1 Storey (4-6m) 3 Storey (10-13m) 5+ Storey (18m+) Study Area

2 Storey (6-9m) 4 Storey (14-18m) *Height range and categories based on Google Earth visual survey

URBAN STRATEGIES INC. 15 2.2.5 USES

9th Avenue SE is a successful commercial corridor, with retail, office, and residential uses, backed by consistent low-scale residential on neighbouring avenues. Low-rise residential uses on the avenues to the north and south remain largely intact, with many historic homes. This limits opportunities for larger or deeper site assemblies for redevelopment on the east side of the corridor, although the west end of the corridor includes more commercial uses on the south side of the corridor, presenting opportunities for intensification.

Figure 8: Land Use

Parks Residential Institutional/Cultural Public Parking Private Green Space Mixed Use/Commercial Industrial

Study Area *Land use based on Google Earth visual survey

16 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 2.2.6 BUILT HERITAGE

The rich history of Inglewood and 9th Avenue SE, dating back to 1875, when the Hudson’s Bay Company established a trading post on the east bank of the Elbow River, has left a remarkable legacy of built heritage, second only to that of Stephen Avenue. The street has a wide representation of significant commercial and mixed residential-commercial architecture, including one of Calgary’s best collections of intact Edwardian Commercial-style buildings.

Below is a summary of 9th Avenue SE’s built heritage. More detailed information can be found in the Inglewood Main Street Heritage Study, prepared for the Local Area Plan Peer Review.

Buildings in the “boomtown commercial style”, featuring gabled roofs, wood frames, beveled wood siding and boomtown false fronts, were built on 9th Avenue SE (then Atlantic Avenue) from 1884 to 1903. Although buildings with intact elements of this style do not remain, some may be uncovered in future restorations.

Edwardian Commercial-style buildings built from 1904 to 1914, and ranging from one to four storeys, characterize the street more than any other style. There are 13 buildings of this style on the historic inventory, with 12 on 9th Avenue SE , and one on 10th Ave SE. They feature flat roofs, wood-frame or solid brick construction (later examples included structural steel and/ or concrete floors), often red face-brick cladding on the front façade, and pressed metal upper and lower cornices. All had Figure 9: Built Heritage storefronts on the ground floor with recessed entry ways and large plate glass display windows with full-width, multi-light Registered Property (3) Provincially Listed (3) Edwardian Commercial Style transom and a sign band above. Most buildings over one storey Municipally Listed (1) Heritage Interest Inter-war and Post-war vernacular buildings were mixed-use, with residential apartments and office space on the upper storeys. Study Area Cultural Landscapes

URBAN STRATEGIES INC. 17 Significant inter-war (1918-1938) buildings on 9th Avenue SE include 1923 Spanish Colonial Revival Blyth Hall and the 1936 Art Deco Garry Theatre. There are also good vernacular examples of post-war (1946-56) buildings, including the 1946 utilitarian Commercial-style Lyon’s Confectionery Building at 1221 9th Avenue SE and the 1946 Economy Cleaners & Tailors Building with International Style influences at 1209 9th Avenue SE.

Many of the Edwardian Commercial-style buildings on 9th Avenue SE are located between 11th Street SE and 12th Street SE and, together with other buildings, form a continuous and distinctive street wall that is fundamental to 9th Avenue SE’s, and Inglewood’s, character and sense of place (see Figure 9). The street wall features one to four-storey, flat-roofed buildings with 25-foot bay rhythm and ground floor storefronts. East of 12th Street SE, the fabric of heritage buildings is more fragmented, with gaps between buildings, although the look and feel of a historic main street remains strong and continues east of 13th Street SE.

The wealth and variety of built heritage on 9th Avenue SE led the Province to declare in 1991 that “Inglewood is endowed with one of the province’s richest collections of historic sites and structures.” In the same year, the City of Calgary acknowledged that “Inglewood contains the greatest concentration and variety of heritage resources in the City,” and Council passed a resolution with the intention to designate an area of Inglewood as a Historic District to “support the physical integrity, social character and history of the area.” Almost three quarters of the historic sites in Inglewood are located in the 9th Avenue SE Corridor.

18 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis URBAN STRATEGIES INC. 18 2.2.7 POTENTIAL REDEVELOPMENT SITES

Inglewood is a desirable inner-city community, with higher- order policy direction to create transit-supportive densities and a planned LRT station located to the south of the corridor. A number of properties within the corridor present the opportunity to redevelop in the foreseeable future. As part of this study, sites along the corridor were assessed at a high level to understand potential for redevelopment, which was considered in the built form analysis. Based on this analysis, there appears to be significant potential for redevelopment along the 9th Avenue SE corridor.

Figure 10 identifies properties along the corridor that are most appropriate for redevelopment based on one or more of the following criteria:

• Underutilized sites such as surface parking lots, auto- oriented uses, and single storey buildings • Large parcels which allow greater flexibility in design and potential height • Older buildings and parcels with no assessed heritage value • Multiple adjacent sites which could be assembled into a larger redevelopment site

For the purposes of this study, sites not anticipated to redevelop include: Figure 10: Potential Sites for Redevelopment • Buildings constructed in the last 20 years Potential Redevelopment Site Future LRT • Properties with identified heritage value including registered Study Area heritage properties (see pages 18-19) Potential Redevelopment Site Outside Future LRT Station Study Area Figure 10 also identifies appropriate sites for intensification south of the corridor, within short walking distance of the future Former Brewery Site (Potential for Green Line station. Partial Redevelopment)

URBAN STRATEGIES INC. 19 2.4 Policy Framework

2.4.1 MUNICIPAL DEVELOPMENT PLAN

The Municipal Development Plan (MDP) provides policy guidance to be implemented through Local Area Plans and the Land Use Study Area Bylaw, among other plans and policies. Calgary’s Municipal Development Plan identifies the 9th Ave Corridor in Inglewood as a Neighbourhood Main Street, which “serve one or more communities, providing a strong social function and typically support a mix of uses within a pedestrian-friendly environment.” Additionally, “Some areas have a more regional draw because of the unique uses present or the quality of the environment, while others serve a more local population base.” Neighbourhood Main Streets areas also are intended for moderate intensification in jobs and population over time – this is reflected and supported by increased development activity and planned rapid transit within the neighbourhood.

Inglewood is a highly successful Neighbourhood Main Street, with a diverse mix of uses and a pedestrian-friendly environment. The 9th Avenue SE corridor is a draw for residents across the city and region, and is well recognized as an important asset to the city for its unique character, which draws on the quality of the community’s environment, pedestrian friendly scale, and mix of uses. The MDP provides high-level urban design guidelines for neighbourhood main streets and built form more generally, and more specific built form guidance is provided through local area plans. MDP policies relevant to this study are highlighted below.

Figure 11: City of Calgary MDP Map 1 - Urban Structure

20 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis MDP Section 2.2: Shaping a More Compact Urban Form Policy 2.2.2 indicates that development should: c. Identify districts, public spaces and buildings of special historic quality and character, and adopt policies for their The Municipal Development Plan directs increased densities “A) Locate transit-supportive land uses, including higher protection and enhancement. to Main Streets, and areas in proximity to the Primary Transit Density residential and employment developments, within Network. Activity Centres and Main Streets supported by the Primary d. Encourage owners to conserve and/or enhance Calgary’s Transit Network; and historic resources, including historic structures, streetscapes, Policy 2.2.1 b) indicates that development of Main Streets should landmarks and viewpoints, parks and gardens, landscapes, be appropriate to the local context by: B) Increase development densities in proximity of the Primary topographical and natural features, archaeological sites and Transit Network by targeting residential and employment artifacts. “i. Maintaining compatibility, avoiding dramatic contrast in intensities within 400 metres of transit stops, in areas height and scale with low density residential areas through deemed appropriate through the Local Area Planning process e. The City will be a leader in preserving and enlivening limits on allowable heights and bulk of new development; and in accordance with the Typology thresholds identified in historic resources using all tools and mechanisms currently Part 3.” available to a municipality. ii. Creating transitions in development intensity between low density residential areas and more intensive multi-unit MDP Section 2.3: Creating Great Communities f. The City will be a role model for the creative use and residential or commercial areas; adaptive reuse of City-owned heritage buildings, including The MDP contains a number of policies aimed at encouraging the excellence in maintenance and restoration. iii. Locating the tallest buildings and highest densities closest protection of historic resources under policy 2.3.3, including: to transit stops and stations and in strategic sites, identified g. Incorporate local history interpretive elements in public by a local area planning process, and stepping down heights “a. The City will identify and help to protect and manage realm improvements in communities and historic districts.” and densities away from these sites; Bylaw 19P2017 Calgary’s historic resources.

iv. Massing new development to frame adjacent streets in a b. Ensure that the protection and enhancement of historic way that respects the existing scale of the street; assets in Calgary is based on an understanding of their special character and form part of the wider design and v. Limiting the impacts of shadowing on neighbouring streets, urban development agenda. parks and properties”

URBAN STRATEGIES INC. 21 MDP Section 2.4: Urban Design Policies for tall buildings indicate that they should be: MDP Section 3.4: Main Streets

Section 2.4.2 of the MDP addresses built form with the objective “i. Sited and architecturally designed to contribute positively General Main Street policies in Calgary’s MDP indicate that the to “Promote site and building design that contributes to high to the skyline of the city; greatest densities and tallest buildings on the Main Street should quality living environments and attractive, walkable, diverse be concentrated into “nodes” that occur at the intersections of neighbourhoods and communities” and includes policies to: ii. Designed with pedestrian scale at the base and a the Main Street with other major transit streets or any Future prominent roofline; Comprehensive Plan Area identified through a local area planning “a. Promote high quality standards of urban design and process. Between the nodes and any Future Comprehensive iii. Integrated with adjacent areas by stepping down to lower- construction that ensures that development builds upon and Plan Area, lower scales of commercial, residential and mixed- scale buildings and neighbourhoods; and, adds value to the existing character of communities. use development are appropriate. Specific policies related to the pedestrian environment and public realm include: b. The ground and lower levels of developments should iv. Considerate of the shadow impacts on adjacent residential areas and parks and open spaces.” (2.3.2 f)) demonstrate a strong relationship to the human scale and “q. Create a human-scale environment along the Main Street contribute positively to the public realm and street. While the MDP does not specifically indicate that tall buildings by generally encouraging a maximum of a 1:1 building height to right-of-way width ratio. Additional height should be c. Encourage the development of low and midrise buildings to are appropriate in Neighbourhood Main Streets such as considered through a Local Area Plan. achieve the desired intensity of development.” Inglewood, it does provide that tall buildings may be appropriate in “where deemed appropriate through a Local Area Plan.” r. For Main Streets that run east-west, building heights The Built Form section of the MDP also recognizes that tall should be designed to allow solar penetration through the buildings, defined as generally those buildings whose height block and reduce shadows cast onto public sidewalks on the is greater than the width of the right-of-way of the street that it north side of the street. Where practical, encourage taller fronts, “by their nature, can have greater impacts on a larger buildings to locate on the north side of the Main Street.” area than small buildings and, thus, they have a larger civic (3.4.1) responsibility and require additional built form principles to be applied to their design.” The policies of the MDP indicate that “Tall buildings are appropriate in the Centre City, Major Activity Centres, or Community Activity Centres and Urban Main Streets where deemed appropriate through a Local Area Plan.”

22 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 2.4.2 INGLEWOOD AREA REDEVELOPMENT PLAN (1993)

9th Avenue SE is designated as a Neighbourhood Main Street While this report provides commentary and recommendations The plan includes some policies related to urban design and in Calgary’s urban structure, and is intended for moderate regarding the draft Historic East Calgary LAP, the current built form, including the general intention 3.3.1: “Development intensification in jobs and people over time. Specific policies Inglewood ARP is briefly summarized here for context. Inglewood’s of an attractive pedestrian oriented retail strip supportive of new under section 3.4.3 related to the pedestrian environment and current Area Redevelopment Plan (ARP), as amended, was businesses, with new building design reflecting the nature of the public realm include: approved in 1993. The ARP recognizes Inglewood as “a Special area” and policy 3.3.1.j, which states that “Maximum height of Character District due to its historic role in the development of buildings on both sides of 9 Avenue should be established to “c. Local Area Plans for a Neighbourhood Main Street should the city” and recommends that “proximity to historic structures ensure reasonable sun exposure to the north sidewalk and the provide a land use framework to achieve a minimum intensity should be considered in design approvals”. rear of the properties along 8 Avenue.” threshold of 100 jobs and population per gross developable hectare. Individual Neighbourhood Main Street densities Among the goals of the ARP of particular relevance to this study While the ARP is in need of significant updates, a number of the and the appropriate job and population distributions will are: goals and intentions of the 1993 ARP, as described above, are be established through a Local Area Plan or within an reflected in the ongoing success of the community’s human-scale Implementation Guidebook. Bylaw 46P2013, 19P2017 “4. To encourage the upgrading and intensification of the 9 main street, and their application would continue to benefit the Avenue commercial area”; area today. e. Local Area Plans for a Neighbourhood Main Street should provide a land use framework to achieve a minimum intensity 5. To help protect and enhance Inglewood’s unique character Specific built form policies are implemented through Land Use threshold of 100 jobs and population per gross developable - a function of its history, geography and residents”; Bylaw Regulations, described in Section 2.4.2. hectare. Individual Neighbourhood Main Street densities 7. To preserve where possible Inglewood’s historic buildings, and the appropriate job and population distributions will commercial and residential, by the following means: (a) be established through a Local Area Plan or within an Historic Designation through the Province of Alberta, (b) Implementation Guidebook. Bylaw 46P2013, 19P2017 appropriate private commercial uses, (c) use of existing f. An appropriate transition between the Neighbourhood Federal or other grants to restore and upgrade.:’ and Main Street and the adjacent residential areas is required. 9. To preserve the “human scale” and rich mixture of social Transition should generally occur at a rear lane or public and business activities of the area.” street. These transitions should be sensitive to the scale, form and character of surrounding areas, while still creating opportunities to enhance the connectivity with the community. Bylaw 19P2017” (3.4.3).

URBAN STRATEGIES INC. 23 Questions guiding the Draft LAP review Calgary’s Municipal Development Plan provides important policy direction for the built environment on Neighbourhood Main Streets. The Draft LAP should implement the policies of the MDP at a local level and is reviewed in detail in consideration of the direction of the MDP in Section 3 of this report, as well as the conclusions and recommendations in Section 5. The following questions flow from this policy direction and have guided the review of the Draft LAP policies:

• Do they promote transit supportive densities and land uses, in appropriate locations?

• Do they identify, protect and enhance areas of special historic quality and character?

• Do they sufficiently ensure that development is compatible and transitions appropriately to lower scaled development?

• Do they ensure that new development creates a human-scale environment?

• If tall buildings are considered, do policies ensure they are pedestrian-scaled at the base, are strategically located, and minimize shadow impacts?

24 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 2.4.3 LAND USE BYLAW

Land Use Bylaw designations applying to the study area include:

C-2 (20) (General Commercial District)

The majority of the study area is within the 1Z93 Direct Control District. Land uses and development guidelines for this district are largely based on the former City of Calgary Land Use Bylaw 2P80 C-2 (General Commercial) District, with a height limit of 20 metres in most locations. The purpose of the C-2 district is “to provide for a wide variety of retail commercial and personal service uses at moderate intensity which serve areas beyond the surrounding community.”

C-COR1 (Commercial – Corridor 1)

Redesignated areas of the 9th Avenue corridor within the study area are generally under the C-COR1 designation under current City of Calgary Land Use Bylaw 1P2007. This district is similar to 2P80 C-2, and is intended for commercial or mixed use development with commercial storefronts and residential units permitted on upper floors. Heights and floor area ratios within the C-COR1 district are varied, and are indicated within the zoning label. Within the study area, C-COR1 heights range from 20-23 metres, and floor area ratios of 2-4.

DC (Direct Control)

Some recent land use bylaw amendments for the area include DC 84D2020, which includes a height limit of 45.0 metres on a site at the northwest corner of 9th Avenue and 12th Street SE, DC 245D2019, which has a height limit of 50.0 metres for portions of the parcel, located at 8th Street and 9th Avenue SE, and Figure 12: City of Calgary Land Use By-law 1P2007 Designations 115D2020, which includes a height limit of 45.0 metres on a site at the southwest corner of 9th Avenue SE and 11th Street SE.

URBAN STRATEGIES INC. 25 2.4.4 GUIDEBOOK FOR GREAT COMMUNITIES

The Guidebook for Great Communities (Guidebook) provides The Guidebook also includes Policy and Scale Modifiers, which the framework for local area plans as well as general policies are applied at the local level. Scale modifiers “determine building applicable to all plans in the developed areas of the City. As height and define how building mass should be managed” and stated on page 3 of the Draft LAP, the Guidebook “establishes Policy Modifiers “are optional policy components that are used the basic, foundational policies for the Plan Area that are to tailor an urban form category to address specific situations in supplemented or superseded by community specific vision and communities.” The application of these Modifiers is discussed policy set out in this Plan.” below.

The Guidebook for Great Communities (Guidebook) is intended The Urban Form Classification System identifies a range of to act as a bridge between the more general policies of the categories, determined by purpose, function, and activity level. Municipal Development Plan and Local Area Plans (LAPs). The These Urban Form Categories do not include specific direction or Guidebook provides a consistent structure for all LAPs, which guidance on built form or scale, which is provided through scale then apply the general urban form classification system and modifiers. associated policies of the Guidebook in more detail at the community scale. The Guidebook also includes Policy Modifiers which are used to “tailor an urban form category to provide additional policy for The Guidebook identifies an Urban Form Classification System to specific locations in communities”. These Policy Modifiers are be applied at the local area plan level. The classification system related to Active Frontages, Commercial Flex, Commercial Cluster organizes form according to a range of categories, determined by: areas, Parks and Open Space Frontage, Vehicle-oriented Uses, and Comprehensive Planning Sites. Scale Modifiers are applied • Purpose, which identifies “the most common function, to Urban Form Classifications at the Local Area Planning level. current and future, of an area”, and includes Neighbourhood, Parks and Open Space, Industrial, Regional and Campus The policies of the Guidebook are closely related to, and categories. implemented through Local Area Plans - commentary regarding the Guidebook is discussed in relation to the Draft LAP in • Function is a sub-category of Purpose which identifies the Chapter 3 of this report. dominant activity of the area, such as commercial, housing, civic and recreation uses. • Activity Level refers to the “anticipated activity generated by people in an area” and include Major, Minor and Local categories.

26 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 3 HISTORIC EAST CALGARY COMMUNITIES LOCAL AREA PLAN (Draft – June 2020)

URBAN STRATEGIES INC. 27 Historic East Calgary Communities Local Area Plan (Draft – June 2020)

The Historic East Calgary Communities Local Area Plan, when approved by Council, will be a statutory policy document intended to provide a framework for local area growth in the communities of Inglewood and Ramsay and a portion of Alyth/Bonnybrook over the long term (future policy work for the remainder of Historic East Calgary will be incorporated into the plan in the future). The Draft Historic East Calgary Local Area Plan (LAP) works in parallel with The Guidebook for Great Communities (Guidebook), which provides a framework for local area planning. At the time of this report, both of these plans are in draft form and have not been finalized or adopted by Council. As the Guidebook and LAP are closely linked, they are discussed together in this section.

The following section provides a review of the Draft LAP in consideration of:

• the Draft LAP’s alignment with higher-order MDP policies; • the Draft LAP’s application of Guidebook policies at a more detailed level; and The following review is organized according to the Draft LAP’s • policies and other elements of the LAP that may benefit structure. Commentary is provided as white text on a blue from more clarity or additional detail. background and accompanies the summary of each chapter or section. This review has informed this report’s recommendations regarding LAP policies, as well as the built form analysis in Chapter 4. As outlined in the Guidebook, LAPs should follow a consistent structure.

28 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis URBAN STRATEGIES INC. 28 Draft LAP: Chapter 1 Comments

The Guidebook identifies “Identity and Place” as one Principle for Chapter 1 – Visualizing Growth Core Ideas: Great Communities on which the vision should be built. While the draft Vision in the LAP is concise and speaks to unique assets “Growth in Historic East Calgary will: of the Historic East Calgary Communities, it does not describe Chapter 1 of the LAP, Visualizing Growth, outlines the Vision an aspirational future state; nor does it suggest how the area and Core Ideas for the plan area, which are followed by a three- • support intensification and economic viability while is intended to evolve and build on its special historic qualities, page history of the area and a brief description of community integrating existing heritage and industrial development; which are fundamental to its ongoing desirability and success as characteristics and attributes. • provide inclusive and diverse housing options focusing along a place to live and visit. 8 Street SE, 9 Avenue SE and areas adjacent to Primary Vision: The Core Ideas capture important planning principles and are Transit Network; similar to the Goals for Great Communities in the Guidebook; “With strong connections to Bow and Elbow rivers coupled with • promote walking, cycling and transit use to access local however, as ideas to support the Vision, they are vague and open freight rail and industrial development, Historic East Calgary employment, commercial and amenities, focusing on 9 to interpretation. For example, the idea of integrating existing Communities will continue to evolve as culturally diverse, vibrant Avenue SE and 11/12 Street SE; and heritage may be more loosely interpreted than the MDP policy and eclectic historic neighbourhoods anchored by the 9 Avenue to “protect and enhance districts, public spaces and buildings SE Main Street, Green Line LRT stations and MAX Purple BRT • encourage social interaction in parks and open spaces for all of special historic quality and character.” There is not a clear stops.” ages and abilities.” connection made between the contextual and historic information Section 1.3 of the Draft LAP provides a foundation of Community on the community provided in Section 1.3 and the Core Ideas or context, including the area’s history, topography, natural features the policies which follow. The Core Ideas would be made stronger and areas, main street, public transit infrastructure, historic by applying them specifically to the unique characteristics and resources, and recreational facilities and community amenities. amenities of the plan area, such as by supporting prosperity and sense of place through support of the continued success of the 9th Avenue Main Street Corridor.

URBAN STRATEGIES INC. 29 Urban Form Comments

The Urban Form categories and active frontage designations Chapter 2 – Enabling Growth will continue to support the walkable main street character, commercial activity, and destination character of the 9th Avenue Chapter 2, Enabling Growth, applies building scale and form corridor. The policy also supports filling in gaps in the corridor’s guidance at the local level. As seen in Figure 13, the plan streetwall over time, further enhancing the pedestrian-oriented identifies the study area primarily as Neighbourhood Commercial character. The City may consider revising the application of Major, which means the area is “characterized by the highest the Commercial Flex modifier used east of 13th Street on concentrations of shops and services, varied destinations and the corridor, and instead apply the Active Frontage modifier, uses that attract people, more transit service and infrastructure, particularly between 13th Street SE and 14th Street SE. Many and high pedestrian movement along the street.” buildings in this area, including recently constructed buildings, currently have active frontages and are already achieving the Policy modifiers applied to the corridor include Active Frontage, goals of the Active Frontage modifier. which directs development to provide active uses at grade, high standards of building design, and should contribute to a high volume of pedestrian activity. Areas of the corridor east of 13th St. SE include Commercial Flex, which are areas that “have future potential for uses that generate higher street-level activity, but in the short-term the market may not support development with active uses at-grade.” The design of commercial flex should enable future active uses at grade.

Figure 13: Draft LAP Urban Form and Policy Modifiers

30 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis URBAN STRATEGIES INC. 30 Map 5 of the Draft LAP (see Figure 14) addresses building scale. ii. provide ground floor units direct access to grade; Ninth Ave SE includes Low (up to 6 storeys) and Mid (up to 12 storeys) scale modifiers, as well as one location at the western iii. avoid long, uninterrupted rooflines and façades; entrance to the corridor designated as High (up to 26 storeys). iv. provide a street wall that proportionately frames the street Most of the 9th Avenue SE corridor is designated as Low, with and creates a people focused public realm; and, the Mid modifier applying to properties on the south side of 9th Avenue SE, between 9th Street SE and 11th Street SE, and to v. have a reduced building volume above the sixth storey.” the properties at the four corners of the 9th Avenue SE and 12th Street SE intersection. High buildings (up to 26 storeys) are permitted within the study area only at the western gateway to the community at 8th Street Policies for Building Scale modifiers applied to the 9th Avenue and 9th Avenue SE. Guidebook policies for High Scale indicate corridor are as follows: that:

Low buildings (up to 6 storeys), which could include a range “a. Buildings should: of forms which achieve the intent of the “Neighbourhood Commercial Major” form category, which in this case would be i. be 26 storeys or less in height; vertical mixed use and office buildings. Guidebook policies for Low Scale indicate that buildings should: ii. provide a street wall that proportionately frames the street and creates a people focused public realm; “i. be six storeys or less in height; iii. have a reduced building volume above the sixth storey; ii. provide ground floor units direct access to grade; iv. have limited floor plate sizes for portions of the building iii. provide a street wall that proportionately frames the street over twelve storeys in height; and, and creates a people focused public realm; and, v. have separation distances between towers. iv. step back or differentiate the primary building façade for storeys above the street wall. b. Point towers may be acceptable where they provide high- quality, human-scaled experiences at the street level with Mid buildings (up to 12 storeys), which should have a publicly-accessible amenity spaces.” reduced volume above the 6th storey and would include mixed-use buildings within the study area. Guidebook policies Built form is addressed in sections 3.1-3.7 of the Guidebook. for Mid Scale buildings indicate that buildings should: Section 3.1 provides building design policies, which address base building articulation, proportionate streetwall heights, i. be twelve storeys or less in height; streetwall rhythms appropriate to the anticipated activity level, Figure 14: Draft LAP Building Scale sunlight access, perception of mass, and architectural variety.

URBAN STRATEGIES INC. 31 Guidebook For Great Communities Comments

Policy 3.2 outlines considerations for ensuring building frontages resources in order to retain and conserve them, and, where The Guidebook’s built form policies are comprehensive and contribute to a pedestrian-oriented, human-scaled environment appropriate, support development applications and Land Use reflect sound principles of good urban design. Since they are for a range variety of contexts and uses. Bylaw relaxations that enable their retention, including, but intended to be applied across the built-up city, they are general not limited to, relaxations of parcel coverage and setbacks. and flexible. To be an effective guide for future development Policy 3.3 contains the following scale transition policies, on 9th Avenue SE, the Local Area Plan should reference these which are of particular relevance to 9th Avenue SE, given the 3.11(b) Encourage property owners to designate Inventory policies and clarify which ones are most relevant to the corridor. intensification it is experiencing: properties as Municipal Historic Resources by enabling As intended, the LAP should also supplement the Guidebook’s additional development potential on sites containing a policies with more specific ones that respond to Inglewood’s a.“New development should transition building height, scale designated Municipal Historic Resource. and mass between higher and lower scale development in unique context and the challenges and opportunities for accordance with the identified scales in the local area plan. 3.11(e) Encourage the design of new development to be redevelopment in the area. Without area-specific built form compatible with abutting sites on the Inventory through policies, the result may be inconsistent outcomes that are b. To transition building height, scale and mass, architectural design, the use of setbacks, massing, street detrimental to the character and vitality of the street. combinations of the following strategies may be used: wall height and landscaping.” For example, Guidebook Policy 3.3(b) identifies a range of i. building step-backs and stepping down heights within strategies for building transitions. The LAP should select the individual buildings; strategies that will be applied along 9th Avenue SE and provide more specific guidance, including metrics, such as angular ii. angular planes to step building height between higher planes and/or minimum stepbacks. and lower building scales; The Guidebook’s heritage resources policies provide important iii. reducing the street wall height to transition the visible general considerations for retaining heritage assets within mass of a taller building to match the cornice line for a the community but, like the built form policies, have not shorter building; been adapted to Inglewood’s unique context in the Draft LAP. For example, the LAP should clarify how much additional iv. decrease scales incrementally through a block; development potential may be granted where a Municipal v. setbacks and landscaping to buffer higher intensity Heritage Resource is protected, and more specific guidance development from lower-intensity development; and, should be provided for how new development on 9th Avenue SE can achieve compatibility with neighbouring properties on the vi. design buildings to have complementary massing on Inventory. both sides of the street.”

Policy 3.11 of the Guidebook addresses heritage resources and includes these policies:

“3.11(a) Encourage the adaptive re-use of heritage

32 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis URBAN STRATEGIES INC. 32 Building Scale Comments

The Draft LAP provides no rationale for doubling the height The Draft LAP also identifies a property at the far west end of limit along the 9th Avenue SE corridor from 6 storeys to 12 9th Avenue SE as appropriate for high-scale buildings (up to storeys in the selected locations. The Historic East Calgary 26 storeys). This presumably is intended to reflect the recently ARP Recommendations Report, dated November 2019, states approved maximum height on the site, which is considerably less that the “intersection of 9 Avenue and 12 Street SE allows than 26 storeys. The policies of the LAP should clarify that the for intensification and an iconic centering element - taller maximum height on this site has been established in the Land buildings marking the center of Inglewood’s 9 Avenue SE Use Bylaw. and a place where Ramsay’s new main street meets the 9 Avenue SE corridor.” Scale recommendations from the 2019 While intensification and greater heights are appropriate in Recommendations Report are shown in Figure 15. With surface many locations along the corridor, policies should be directed parking on two of the corner properties and one- and two- storey at ensuring that these heights are sensitive and appropriate buildings on the other corners, there are clearly intensification to the unique character of this historic main street. While the opportunities. However, it is not clear why, from an urban design Guidebook, in combination with the Draft LAP, provide high- perspective, 9th Avenue SE needs an iconic centering element, level policies aimed at reducing built form impacts of height, what benefits it would bring, and why the element should take the they are general and could lead to inconsistent application form of a 12-storey building. Furthermore, Ramsay’s aspirational and uncertainty of outcomes, impacting all stakeholders. main street is more than four hundred metres to the south. Calgary’s MDP identifies a number of important policies and goals relating to the 9th Avenue SE corridor, including Figure 15: B&A Height Recommendations - November 2019 The intersection of 9th Avenue SE and 12th Street SE is certainly “avoiding dramatic contrast in height and scale” with residential an important crossroads within East Calgary, but there are many areas, “Massing new development to frame adjacent streets different ways of marking it as such, for example, with distinctive, in a way that respects the existing scale of the street” and high-quality architecture, a civic building or open space, and/or creating “a human-scale environment along the Main Street enhanced streetscape features. Following an analysis of impacts, by generally encouraging a maximum of a 1:1 building height there may be a rationale for buildings taller than 6 storeys at the to right-of-way width ratio.” While there is potential for higher- intersection, but why 12 storeys, particularly when the historic scale development to minimize impacts and contribute to a character of the street is defined by buildings of 1-4 storeys? human-scale environment, the Draft LAP would benefit from more specific and clear direction as to how these higher-order There is also no rationale provided for a height limit of 12 storeys policy objectives could be achieved locally. Section 5 includes on the south side of 9th Avenue SE, between 9th Street SE and recommendations for more specific built form guidelines for the 11th Street SE, either in the Draft LAP or the Recommendations 9th Avenue SE corridor. Report, which notably recommends a height limit of 6 storeys on the front half of the properties facing 9th Avenue SE.

33 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis URBAN STRATEGIES INC. 33 Draft LAP Section 2.5: General Policies Draft LAP Section 2.6: 9th Avenue SE Main Street Draft LAP Section 2.15: Heritage Planning Areas

Section 2.5 of the Draft LAP contains general policies, none of Section 2.6 contains area-specific policy for the 9th Avenue Section 2.15 of the Draft LAP states that “The City is currently which applies to the built form of future development. Policies of SE Main Street. An introduction describes how it will ”have reviewing policy and financial tools for heritage areas, with the particular relevance to this study’s area of focus and study area a cohesive, pedestrian-oriented streetscape with mixed-use objective of creating a systematic, city-wide strategy for the include: development that include active frontages with a street wall conservation of these heritage asset concentrations.” Although height of generally up to six storeys. Historic buildings interwoven it contains a significant number of heritage assets, 9th Avenue • Policy 2.5.1, which indicates that “Buildings with historic with new development will create an eclectic streetscape that SE has not been identified in the Draft LAP as a Heritage value should be rehabilitated, adaptively reused and/or will continue to evolve over time.” The policies of Section 2.6 Planning Area. At the time of this review, the City is beginning integrated into new development.” reduce the impact of vehicular access and movement, encourage its review of policy and tools for heritage conservation along more gathering and open spaces, encourage public art and limit commercial streets. Policy 2.15.3 indicates that for 9th Avenue • Policy 2.5.10: “Garages shall only be accessed from the stand-alone single uses and large format retail. These policies SE, “Applicants are strongly encouraged to contact The City to street if the site has no lane access.” contribute to the continued success of this pedestrian-oriented determine development considerations related to heritage prior • Policy 2.5.13: “On-site vehicular parking should be minimized main street. to submitting a planning application.” through Travel Demand Management measures.”

General Policies Comments 9th Avenue Main Street Comments Heritage Planning Comments While the policies contained in section 2.5 will support the While the Draft LAP identifies 9th Avenue SE as an area of Heritage is an integral part of the plan area’s context and historic character and walkable environment of 9th Avenue, special quality and character, policy for this area could be character, particularly within the 9th Avenue SE corridor, and Policy 2.5.1 could be strengthened by indicating direction or strengthened with more specific description of what that would represent a significant gap in the plan if not addressed. preference for the retention of buildings with historic value. character consists of and policy aimed at protecting these While we recognize that at this time area specific heritage unique characteristics. Although they serve as good general policies have not been prepared, Inglewood should certainly policies for attractive and pedestrian-friendly environments, the be identified as a Heritage Planning Area for protection and Draft LAP policies in Section 2.6 do not provide sufficient, area- enhancement. Also, given the development pressure in the specific direction for 9th Avenue SE. The built environment of 9th community, the City should consider prioritizing such work. Not Avenue SE is essential to its success and character, and policy including these policies within the approved plan could have the for this area should reflect and enhance this character while effect of encouraging applications for redevelopment prior to the facilitating its ongoing evolution. More specific direction and adoption of potentially more restrictive heritage policies. guidelines related to built form would enable this.

34 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis Draft LAP: Chapter 2 Comments

The City’s vision for 9th Avenue SE becomes clear in the introduction to the policies in Section 2.6. However, the vision downplays the significance of the street’s heritage to the corridor’s identity and success as a place, stating that historic buildings will be “interwoven with new development,” the meaning of which is unclear. Although architecturally the streetscape is, and should continue to be, eclectic, the historic low-rise scale of the street should be acknowledged as a characteristic to be respected by future development. In addition, the applicable heritage resources policies in the Guidebook should be referenced and reinforced in Section 2.6.

Three of the 11 policies in Section 2.6 address the opportunity for publicly accessible private amenity space along the corridor. Given the narrowness of 12th Avenue’s sidewalks, such spaces could bring many benefits to the public realm and to businesses; on the other hand, too many of them or spaces that are too large could unnecessarily interrupt the street wall. The LAP should provide more specific direction regarding the scale and function of such spaces; for example, if they are intended to accommodate restaurant patios or retail displays, what is an appropriate depth? If there are strategic locations for gathering spaces, a map should identify them; are such spaces encouraged at all four corners of the intersections identified in Policy 2.6.7?

Section 2.6 does not specifically address future built form along 9th Avenue SE. The intent is that the urban design guidelines in the Guidebook for Great Communities will apply, although this should be made clear with a policy stating such.

35 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis URBAN STRATEGIES INC. 35 Draft LAP: Chapter 3 Comments

Chapter 3 – Supporting Growth Chapter 4 – Implementation and Interpretation Chapter 3 repeats and expands on the Core ideas identified in Chapter 1 with Growth Goals and also includes general Chapter 3 of the Draft LAP, Supporting Growth, sets out goals Chapter 4 of the Draft LAP describes mechanisms for objectives to guide investments in the community. The goals and objectives intended to guide business plans and budget implementation and interpretation guidance, and has not been and objectives of the LAP should appear in Chapter 1, where decisions regarding future amenities and infrastructure included in this review. they would help to clarify the Vision and Core Ideas, and they associated with growth. The Supporting Growth Goals provide a should address public investments and private development, more detailed description of the core ideas outlined in Chapter since both work together to make a great community. As per the 1 of the LAP. Each goal has a series of associated general, direction in the Guidebook, Chapter 3 should include policies long-term objectives. Objectives associated with the “Support regarding amenities and infrastructure, identify specific potential intensification and economic viability while complementing investments, provide guidance for future service plans, and existing heritage development” goal include: identify potential funding tools. • Recognize and support community character through public realm investment.

• Enhance the quality of the pedestrian realm along the 9th Avenue SE Main Street and in station areas.

• Ensure residents have access to a variety of public spaces in which to create and develop social connections with their neighbours.

• Recognize, re-adapt and preserve community heritage, where appropriate.

36 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis URBAN STRATEGIES INC. 36 4 BUILT FORM ANALYSIS

URBAN STRATEGIES INC. 37 4.1 Introduction

When significant physical change is proposed for an area, particularly for a historic and generally healthy community like Inglewood, careful analysis should be undertaken to assess the potential impacts of that change and ensure negative impacts will be minor and the overall impact will be positive. The analysis also should inform policies, guidelines and regulations intended to ensure compatibility between new and existing development.

Methodology a stepback of 1.5 metres is provided above the sixth storey, which is The built form analysis begins in the next section with a series of consistent with City policy to reduce a building’s mass above this height. pedestrian level views of each scenario. The analysis focuses on To assess the impacts of future 12-storey buildings on 9th Avenue two types of potential impacts proposed building scales in the Draft SE, we digitally modeled and analyzed built form conditions along the Figures 17-20 show the four scenarios from a bird’s-eye view LAP: pedestrian views of the streetscape and shadow impacts on corridor under four scenarios: looking west and are provided to illustrate the significant amount of 9th Avenue SE sidewalks, public open spaces, and neighbouring intensification that may occur along a portion of 9th Avenue SE over residential properties. 1. Existing Conditions time, whether height limits are maintained at 6 storeys or increased on certain properties. 2. Intensification to the Height Limits in the Land Use Bylaw (generally 6 storeys or 20-23 metres, with recent exceptions to permit greater height on three properties)

3. Intensification to the Height Limits in the Draft LAP (generally 6 storeys, with exceptions permitting 12 storeys on additional properties)

4. Intensification to the Height Limits in the Land Use Bylaw but with floors above the 4th storey set back to reflect a maximum street wall of 4 storeys

Scenarios 2-4 take a long-term view of potential intensification along 9th Avenue SE, assuming eventual redevelopment of the “Potential Sites for Redevelopment” identified inFigure 16. This approach illustrates both the impacts of individual potential redevelopments, regardless of their timing, and the cumulative impacts of intensification over time.

Although it is conceivable that some of the future intensification along 9th Avenue SE will take the form of office buildings, Scenarios 3-4 illustrate mixed-used development consisting of commercial uses on the ground floor and residential uses above on all redevelopment Figure 16: Potential Sites for Redevelopment sites, since this form is expected to be more common. Where 12-storey buildings are shown and do not reflect an active proposal, Potential Redevelopment Site Study Area

38 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis Figure 17: Existing Conditions Figure 18: Land Use Bylaw - 6 storeys with exceptions

Figure 19: Draft LAP - 6 & 12 storeys Figure 20: 6 storeys with stepbacks URBAN STRATEGIES INC. 39 4.2 Pedestrian-level Model Views

Pedestrian-level views of each built form scenario from intersections along 9th Avenue SE and 12th Street SE have been generated to assess the impacts of each scenario on the character of the street and the pedestrian experience, in terms of building scale and massing. These views inform an evaluation of whether or not the changes proposed in each scenario support the Municipal Development Plan’s objective to “protect and enhance districts, public spaces and buildings of special historic 9 quality and character” and to achieve “pedestrian-friendly 1 2 environments” where development is massed “to frame adjacent 3 5 4 streets in a way that respects the existing scale of the street.” 6 8 7

Figure 21: View Locations (Numbered) View Locations Study Area

40 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 1. View Looking East from 9th Ave. SE and 9th St. SE

Recent buildings on 9th Avenue SE of 5-6 storeys are dominant in this view. Additional future 6-storey buildings in the distance, east of 10th Street to 12th Street SE, would extend this contemporary street wall. Stepping back the top two floors of 6-storey buildings would have a negligible impact on the view from this vantage point.

Twelve storey buildings between 10th Street SE and 11th Street SE and at 12th Street SE would signal to the pedestrian that ahead is an important urban centre within the city, not a historic neighbourhood main street. Tall buildings in the distance would also significantly diminish the sky view that is fundamental to the experience of the street today.

Existing Conditions Land Use Bylaw, including recent approvals

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Draft LAP - 6 & 12 Storeys Six Storeys with Stepbacks

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URBAN STRATEGIES INC. 41 2. View Looking East from 9th Ave. SE and 11th St. SE (north side)

This view today highlights a sizable gap in the main street at 11th Street SE. Future 6-storey buildings on the northeast and southeast corners would create a view similar to the existing view looking east from 9th Street SE (see previous page), with a sheer 6-storey street wall contrasting sharply with the historic buildings directly east. Six-storey buildings with a stepback would result in a streetwall more closely aligned with the heritage buildings. Distant six-storey buildings at 12th Street SE and farther east would appear less dramatically different in scale from the neighbouring low-rise historic buildings.

Twelve-storey buildings at 12th Street SE, however, would overwhelm and detract from the historic buildings in the middle- ground. They would also diminish the sky view and, like the previous view from 9th Street SE, would signal to the pedestrian Existing Conditions Land Use Bylaw, including recent approvals that ahead is an important urban centre within the city.

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42 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 3. View Looking East from 9th Ave. SE and 11th St. SE (south side)

As in the previous view from the north side of the street, 6-storey buildings in the foreground would contrast sharply with the two- storey historic buildings on the north side of the block ahead. New buildings at this height but with stepped back upper floors would be more compatible.

Twelve-storey buildings at 12th Street SE would mark a much more dramatic departure from the historic scale of the streetscape, overwhelming and detracting from the heritage on this block. The significantly reduced sky view would further reinforce the sense of being in a city centre, not a neighbourhood.

Existing Conditions Land Use Bylaw, including recent approvals

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URBAN STRATEGIES INC. 43 4. View Looking West from 9th Ave. SE and 12th St. SE

In this view, both 6-storey and 12-storey buildings at 12th Street SE, with no stepbacks below the 6th storey, would contrast sharply with the existing scale of the street established by historic buildings of 1-4 storeys on the south side of the block, diminishing the heritage character of the street. Buildings of 6 storeys with stepbacks would be much more respectful of the street’s scale and character, giving the historic buildings more prominence. A 12-storey building at 11th Street SE would also appear out of place within the existing streetscape.

Existing Conditions Land Use Bylaw, including recent approvals

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44 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 5. View Looking East from 9th Ave. SE and 12th St. SE

Compared to the block between 11th Street SE and 12th Street SE, there are fewer historic buildings and much more potential for change in the next block to the east, as these views would suggest. Continued intensification will dramatically change the scale and character of this segment of 9th Avenue SE over time. Six-storey buildings with no stepbacks would contrast sharply with the heritage buildings in this view (note, the historic East Calgary Telephone Exchange building, set back from the street, disappears from view). The visible portion of a future 12-storey building on the existing parking lot at 12th Street SE would reinforce the juxtaposition between new and old. Six-storey buildings with stepbacks would continue the perceived scale and character of the more intact streetscape west of 12 Street SE.

Existing Conditions Land Use Bylaw, including recent approvals

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Draft LAP - 6 & 12 storeys Six Storeys with Stepbacks

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URBAN STRATEGIES INC. 45 6. View Looking West from 9th Ave. SE and 13th St. SE (north side)

As suggested in the previous view, future 6-storey buildings with no stepbacks on the block between 12th Street SE and 13th Street SE will fundamentally change its character and the pedestrian experience. With the possible exception of the historic Fraser & Seabloom Building, the heritage of the block will be overwhelmed. Stepbacks above the fourth storey would result in a more respectful and pedestrian-friendly streetwall. Twelve- storey buildings at 12th Street SE, diminishing sky views, will signal that Inglewood is not a neighbourhood main street but rather an important centre in the city or part of downtown.

Existing Conditions Land Use Bylaw, including recent approvals

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46 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 7. View Looking West from 9th Ave. SE and 13th St. SE (south side)

Like in the view from the north side of the street, future 6-storey buildings with no stepbacks will overwhelm the low-rise heritage buildings in this view, and 12-storey buildings at 12th Street SE would create an even more dramatic height juxtaposition and reduce sky views. Six-storey buildings with stepbacks would be more compatible.

Existing Conditions Land Use Bylaw, including recent approvals

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URBAN STRATEGIES INC. 47 8. View Looking North up 12th St. SE

This view illustrates a sense of arriving in Inglewood from the south and approaching 9th Avenue SE. Today, it is not immediately apparent where the residential neighbourhood ends and the main street begins. Six-storey buildings at 9th Avenue SE and 12th Street SE, standing out from the homes in the foreground, will clearly change that and suggest a neighbourhood commercial corridor ahead. Twelve-storey buildings, on the other hand, would signal to the pedestrian that ahead is an important centre within the city, not a historic neighbourhood main street.

Existing Conditions Land Use Bylaw, including recent approvals

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48 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 9. View Looking South down 12th St. SE

These approach views from north of 9th Avenue SE, give similar impressions to those from the south. Future 6-storey buildings will identify 9th Avenue SE’s point of arrival; whereas 12-storey buildings would suggest a distinct high-density centre or an extension of downtown.

Existing Conditions Land Use Bylaw, including recent approvals

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URBAN STRATEGIES INC. 49 4.3 Shadow Impacts

Focusing on the segment of the 9th Avenue SE Corridor where Summer Solstice (June 21) The shadow impacts of the proposed 16-storey building at 9th 12-storey buildings are proposed, the following analysis Avenue SE and 11th Street SE would be similar to those of a illustrates the shadows that would be cast by future 6-storey The illustrations on the following pages show the extent of 12-storey building but less severe, since the tower element buildings and overlays the shadows from 12-storey buildings, shadows cast by currently proposed buildings (purple line) and occupies only a portion of the site. from late morning to late afternoon on June 21st (summer conventional 12-storey buildings as supported by the Draft solstice) and September 21st (fall equinox). Historic East Calgary LAP (red line) on the summer solstice. For The afternoon and evening shadowing of both sides of 9th comparison purposes, these are shown on top of the shadows Avenue SE by buildings of 12-storeys or more, which would not be cast by existing buildings (grey shadow) and conventional future the case with 6-storey buildings, is of particular concern, since it 6-storey buildings (blue shadow). would have a negative impact on the micro-climate experienced by most pedestrians, most days. The shadow study shows that 12-storey buildings at 9th Avenue SE and 12th Street SE would:

• shadow the sidewalks on both sides of 9th Avenue SE in the late morning; • shadow the sidewalks on both sides of 12th Street SE in the early afternoon; • shadow the sidewalks on both sides of 9th Avenue SE in the late afternoon and early evening; • shadow approximately a third of the lawn bowling green in the late afternoon; • completely shadow the rear yards of two homes on 8th Avenue SE in the evening. • In addition, the study shows that a 12-storey building on the south side of 9th Avenue SE, between 10th Street SE and 11th Street SE would: • shadow the sidewalks on both sides of 9th Avenue SE in the late afternoon and early evening; • shadow all four corners of the 9th Avenue SE and 11th Street SE intersection in the evening.

50 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis Summer Solstice (June 21) Shadow Study

June 21: 11.18 AM June 21: 12.18 PM June 21: 13.18 PM

June 21: 14.18 PM June 21: 15.18 PM June 21: 16.18 PM

June 21: 17.18 PM June 21: 18.18 PM June 21: 19.18 PM

Park & Open Space Existing Building Shadow LUB (6st) Shadow LAP (12st) Shadow Approved Application Shadow

URBAN STRATEGIES INC. 51 Autumn Equinox (September 21)

The illustrations on the following page show the extent of shadows cast by actively proposed buildings (purple line) and conventional 12-storey buildings as supported by the Draft LAP (red line) on the autumn equinox, when the weather generally encourages outdoor activity. For comparison purposes, these are shown on top of the shadows cast by existing buildings (grey shadow) and conventional 6-storey buildings (blue shadow). They show that 12-storey buildings at 9th Avenue SE and 12th Street SE would:

• shadow the sidewalks on both sides of 9th Avenue SE in the late morning; • heavily shadow the lawn bowling green through the late afternoon and early evening; • entirely shadow the rear yards of three homes on 8th Avenue SE in the evening. • In addition, the study shows that a 12-storey building on the south side of 9th Avenue SE, between 10th Street SE and 11th Street SE would appear to shadow the sidewalks on both sides of 9th Avenue SE in the early afternoon, whereas a 6-storey building would not. • In comparison, the shadow impacts of 6-storey buildings on the street, the lawn bowling club and backyards would be far less severe than those of 12-storey buildings.

52 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis Autumn Equinox (September 21) Shadow Study

September 21: 11.18 AM September 21: 12.18 PM September 21: 13.18 PM

September 21: 14.18 PM September 21: 15.18 PM September 21: 16.18 PM

September 21: 17.18 PM September 21: 18.18 PM September 21: 19.18 PM

Park & Open Space Existing Building Shadow LUB (6st) Shadow LAP (12st) Shadow Approved Application Shadow

URBAN STRATEGIES INC. 53 5 CONCLUSIONS & RECOMMENDATIONS

54 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 5.1 General Conclusions and Summary of Draft LAP Comments

Ninth Avenue SE’s unique and rich historic character is fundamental to the identity and sense of place of both the street, a popular destination, and the larger community of Inglewood. This character should be respected and celebrated through a sensitive approach to intensification.

Other than Stephen Avenue, there are no other commercial • Given the limited depth of the properties where 12-storey As the preceding built form analysis illustrates, the mass of streets in Calgary with as much history and architectural heritage buildings would be permitted along 9th Avenue SE under 12-storey buildings along 9th Avenue SE would overwhelm as 9th Avenue SE. Over the past century, the street’s character the Draft LAP, they provide limited opportunity for built form existing heritage buildings, diminish sky views, and has become more eclectic, but the collection of Edwardian transitions and would result in massing that does not frame fundamentally alter the character and pedestrian experience of commercial-style buildings, in particular, is remarkable and adjacent streets in a way that respects the existing scale of the street. The experience of walking (or cycling or driving) toward essential to the street’s identity. The most historic part of the the street; or among tall buildings would feel more like being downtown or corridor and neighbouring residential areas are expected to be in a secondary centre within the city and less like being on a • The Draft LAP’s 12-storey height limit on selected sites, and the studied as a potential heritage district, and until then it should neighbourhood main street. lack of context-specific built form policies or guidelines in the be treated as such: the conservation of significant properties LAP or the higher-level Guidebook for Great Communities, will should be a priority, and the form of new development should The shadow impacts of 12-storey buildings, from late spring to make it difficult or impossible to limit the impacts of shadowing complement historic buildings and not detract from or overwhelm early fall, would also be significant.Such buildings would cast on neighbouring streets, parks and properties. them. shadows across lengthy stretches of sidewalk on both sides of the street in the late morning, later afternoon and early evening, There is no clear and compelling urban design rationale to The Draft Local Area Plan is inconsistent with the principles popular times for strolling, shopping and dining out. Twelve- permit 12-storey buildings on 9th Avenue SE, and such buildings and policies of the Municipal Development Plan and does not storey buildings at 12th Street SE would also heavily shadow would have significantly adverse impacts on the character and provide sufficient or appropriate guidance for intensification the historic lawn bowling club beginning mid-afternoon through pedestrian experience of the street and on nearby properties, along 9th Avenue SE. The MDP’s intentions with respect to new much of the summer and into the fall. The backyards of some including a historic open space. There are many ways to mark development on Neighbourhood Main Streets are clear and are residential properties on 8th Avenue SE would also be adversely and celebrate important crossroads like 9th Avenue SE and contravened by the Draft LAP, specifically: affected by shadows, and there will be a loss of privacy for some 12th Street SE—for example with a civic building or open space, residents on 8th Avenue SE and 10th Avenue SE from residents enhanced streetscaping and/or buildings with distinctive • In permitting 12-storey buildings among historic buildings of adjacent 12-storey buildings overlooking their properties. of 1-4 storeys, the Draft LAP is setting up conditions of architectural features, potentially including elements that are incompatibility and dramatic contrasts in height and scale; slightly taller than neighbouring buildings. In the context of 9th Permitting 12-storey buildings on 9th Avenue may result in Avenue SE’s historic scale of 1-4 storeys, buildings up to 12 perceived improvements to the street by encouraging the • Twelve-storey buildings are planned on strategic sites south storeys would be excessive and have significant negative impacts. of the 9th Avenue SE corridor, close to the Green Line station, replacement of undesirable uses or unattractive buildings, and The rationale for permitting buildings up to 12 storeys further the population in such buildings should be good for business but also directly on 9th Avenue SE, where the strategic west, between 9th Street SE and 11th Street SE, is less clear. benefits are not apparent and would be outweighed by the along the corridor. However, the historic lotting and built form adverse impacts of tall buildings, such as shadowing the context of Inglewood cannot comfortably accommodate such public realm along the Main Street; buildings. By being so ill-fitting and out of scale with existing development, their adverse impacts on the unique character

URBAN STRATEGIES INC. 55 and pedestrian experience of the street will be significant. General LAP Policy Recommendations • Supplement general policies of the Guidebook with more These negative impacts would outweigh any positive impacts, specific policies and guidelines that respond to Inglewood’s in our opinion, and should be considered in light of the ongoing The Draft Local Area Plan does not meet the expectations for unique context and the challenges and opportunities for opportunities for intensification and streetscape enhancements LAPs, as set out in the Guidebook for Great Communities, and redevelopment in the area. through built form in the range of 5-7 storeys. does not respond appropriately to the unique characteristics of 9th Avenue SE. Recommendations to strengthen the Draft LAP • Clarify policies regarding publicly accessible private amenity The development of buildings up to 6 storeys will dramatically include: spaces to ensure that such spaces are limited along 9th increase density along the 9th Avenue SE corridor over time, Avenue SE and are designed in a manner that supports street and, together with the planned intensification of former • Generally limit height of new development to 6 storeys along the life and does not unnecessarily interrupt the street wall. commercial and industrial lands south of the corridor will corridor, except where new development can demonstrate impacts support the Green Line and significantly increase community on the public realm, including on heritage, shadows on public • Identify Inglewood in policy as a Heritage Planning Area vitality. Given the number and size of appropriate redevelopment realm, and reduced sky views, can be adequately mitigated or for protection and enhancement, and a heritage study sites along 9th Avenue SE, there is the potential to increase the avoided. should be prioritized, with its recommendations folded into population and employment density in the corridor by several the LAP. The study will define and highlight the significant • Implement built form guidelines, as described in Section 5.3 times in the foreseeable future within a general height limit of heritage characteristics of 9th Avenue SE, which will help ensure of this report to preserve and enhance the unique and valued 6 storeys. Over the long term, permitting 12 storeys on a limited future development respects and, where appropriate through characteristics of 9th Avenue SE corridor. number of properties will have only a marginally greater density conservation measures, preserves the character of the street. impact. • Revise the Vision to be more aspirational and describe how the • As called for in the Guidebook, Chapter 3 should include policies area is intended to evolve and build on its special historic Notwithstanding the conclusion that 6 storeys is an appropriate regarding amenities and infrastructure, identify specific qualities. height limit along 9th Avenue SE, additional built form controls potential investments, provide guidance for future service plans, and identify potential funding tools. are need to maintain the scale and character of the streetscape. • Revise the Core Ideas to be less vague, and ensure they are The built form analysis in Section 4 demonstrates that extending clearly connected to the unique characteristics and amenities the street wall of 6 storeys beginning to be established by recent of the plan area. development, in time, will dramatically change the existing scale of the street, at mostly 2-3 storeys east of 11th Street SE. This change • Revise Chapter 1 to contain goals and objectives that help to will diminish its heritage character, increase shadows and diminish clarify the Vision and Core Ideas. sky views. These impacts can be mitigated by requiring upper floors to be stepped back along the street along with similar built form • Include reference to the applicable general policies of the transitions where a new building is adjacent to a low-rise heritage Guidebook and clarify which ones are most relevant to the building. corridor, to ensure the LAP is an effective guide for future development on 9th Avenue SE.

56 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis 5.2 Recommended Heritage Conservation Strategies

As 9th Avenue SE continues to develop, every effort should We recommend the creation of a heritage management plan for Based on the heritage assets identified in this report and in the be made to conserve the many heritage properties that are the Inglewood Main Street area which would incorporate an array Inglewood Main Street Heritage Study, prepared for the Local fundamental to its character and sense of place. This will require of heritage conservation strategies in a phased approach. The Area Plan Peer Review (under separate cover), most or all of the policies, incentives and other actions initiated by the City of plan would identify implementation mechanisms for individual study area would qualify for all three layers of policy. heritage resources, as well as the broader heritage context. Calgary. The heritage study describes additional heritage conservation In Europe, the United States and many other Canadian provinces At a policy Level, the City of Calgary’s Heritage Areas Policy, which strategies for individual historic resources, organizing them heritage district policy and legislation is widely used and very is being developed at the time of this report, could help provide by five main types: acquisition/ownership, property rights, effective in retaining the built heritage. One successful example effective heritage protection for the study area in the form of regulation, education/promotion and incentives. for a Canadian inner city commercial main street is the Queen incentives, building design guidelines and comprehensive policy Street West Heritage Conservation District (HCD) in Toronto, controlled by a Direct Control Bylaw with design regulations. where 254 properties are protected under the Ontario Heritage Although currently being developed for residential assets only, Act (OHA). The area is managed by a heritage management plan this policy would be especially effective for the Inglewood Main which is a requirement for all HCD’s. The plan includes design Street area if applied to commercial streets as well. guidelines for both retaining the heritage attributes (referred This policy would apply three layers to the Heritage Area based on to here as character defining elements) of the existing heritage the level of heritage frontage for a given block-face: buildings and guiding the street wall elements (form, building heights, setbacks) as well as architectural façade patterns and • Layer 1 - Incentives, such as additional permitted and features of new buildings. These latter guidelines would manage discretionary uses, increased density and lot coverage, the character defining elements of the streetscape. reduced parking requirements, and expedited approvals.

Although enacting legislation such as the OHA for Alberta would • Layer 2 - Discretionary design guidelines (such as roof pitch, support heritage conservation in Inglewood in the longer term, massing, fenestration, materiality, etc.) for all building types many of the outcomes could be achieved in the interim through in the policy area, which would apply to all heritage assets zoning bylaw direction and Local Area Planning policies which within defined areas with 25% heritage assets on a block provide design regulation for the existing heritage buildings, face. These discretionary guidelines are not as strong as street wall elements and new buildings. This type of direct design regulation. control has been used by Edmonton heritage planners since 1982 to manage Heritage Overlay Districts. Although the creation • Layer 3 - Comprehensive policy controlled by a Direct Control of Direct Control Bylaws customized for specific purposes is Bylaw. Such policy would apply to all buildings within defined generally discouraged in Calgary, an exception should be made areas with 50% heritage assets on a block face, and would for Inglewood, for one of the most significant heritage areas in include context-specific design regulations (such as massing, the province. setbacks, roof pitch, etc.). Implementing such a policy would generally require supportive property owners.

URBAN STRATEGIES INC. 57 5.3 Recommended Built Form Guidelines

Based on best practices in communities comparable to Inglewood and the analysis of the 9th Avenue SE corridor, we recommend the LAP include area-specific built form guidelines that respond to the corridor’s unique and valued characteristics and complement the applicable urban design guidelines in the Guidebook for Great Communities.

Many municipalities seeking to maintain the scale and character floor, a four-storey building typically would have a height of 14-16 should be evaluated based on its architectural merits, and it may of their historic neighbourhood main streets, while encouraging metres. This proportion of streetwall to right-of-way is generally be appropriate to grant minor variances from the angular plane intensification, have adopted, and successfully applied, built form considered optimal for a commercial main street, whether restriction where the massing impacts will be minimal. guidelines focused on mitigating the massing impacts of buildings historic or not, as it balances a strong sense of enclosure with taller than the prevailing heights of historic buildings, which openness to the sky. At the rear of the property, a recommended As illustrated in Figure 21, the application of the recommended typically do not exceed four storeys. One goal of such guidelines is 45-degree angular plane applied from a height of 10.5 metres angular planes could allow for buildings up to seven storeys (22- to maintain the perception, from a pedestrian’s perspective, of a (three storeys) would ensure a more gradual transition to low-rise 23 metres) along 9th Avenue SE. However, height limits in the consistent and authentic street wall and generous views of the sky development to the rear. corridor should be increased accordingly in the Land Use Bylaw above the buildings. This is accomplished by prescribing greater only if such an amendment were accompanied by angular plane building setbacks for the portions of buildings above four storeys, As a guideline, the recommended angular planes are a good or equivalent stepback provisions. referred to as stepbacks. The preceding built form analysis of 9th general rule to be followed; however, each proposed development Avenue SE in Section 4 demonstrates how stepbacks might change the massing of buildings and help to maintain the historic scale and character of the street.

Increasingly, guidelines for traditional main streets use 45-degree angular planes extended from defined heights at the front and rear of the property to determine the appropriate setback at each storey of the upper portion of the building. The application of angular planes not only helps to maintain the look and feel of the streetscape but also ensures that taller buildings do not significantly increase shadows on the pedestrian realm of the street, public open spaces and properties to the rear. The impacts of overlook from upper floors onto private properties at the rear are also mitigated.

For 9th Avenue SE, a 45-degree angular plane starting at a height of 16 metres above the front property line is recommended. This height equates to 80% of the width of the right-of-way, as illustrated in Figure 21. Depending on the uses above the ground Figure 22: Recommended Angular Plane Guidelines

58 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis SUMMARY OF BUILT FORM GUIDELINES

The full set of built form guidelines outlined below build upon the recommended angular plane guidelines. They are intended to help ensure future development greater than four storeys along 9th Avenue SE transitions appropriately to neighbouring properties and fits comfortably within the historic streetscape. 1 Buildings should be built to, or close to, the front property line to contribute to a consistent streetwall. 6 Setbacks maybe appropriate to accommodate restaurant patios or for retail displays but generally should not exceed 3 metres. 7 The facade should reinforce a streetwall of 3-4 storeys 2 and have a minimum height of two storeys. 8

3 Ground floors should have a height of 4.5-5 metres.

Apply an angular plane starting at 16 metres above 4 the front property line to determine appropriate front stepbacks.

Apply an angular plane at 10.5 metres above the rear 5 property line to determine appropriate rear stepbacks. 1 6 Buildings of seven storeys should be permitted where the angular planes are respected. 2 Rooftop mechanical equipment should be screened or 7 located within penthouses and located within the front 3 and rear angular planes. 4 Buildings should be built to the interior side lot line up to a 8 height of four storeys. Portions of buildings above the fourth 5 storey should be stepped back from side lots lines to provide 9 a transition to neighbouring buildings (Heritage Impact Assessments should provide additional guidance where appropriate).

Buildings should have rear setbacks of at least five Figure 23: Illustration of Recommended Built Form Guidelines 9 metres where they back onto residential properties.

URBAN STRATEGIES INC. 59 60 Historic East Calgary Local Area Plan | Peer Review and Urban Design Analysis