REQUEST FOR DECISION
DATE: September 27, 2017 Report No. DEV-17-058
TO: Laurie Hurst, Chief Administrative Officer
FROM: Karen Hay, Planner / Bill Brown, Director of Development Services
SUBJECT:
Title
Heritage Alteration Permit with Variance - 429 Lampson Street
End
RECOMMENDATION:
Recommendation
That Council resolves that Heritage Alteration Permit No. HAP00002 [Appendix A] that varies the provisions of Heritage Designation [429 Lampson Street] Bylaw, 2013, No. 2807, allowing the alterations and additions to the heritage building in accordance with the architectural drawings prepared by Merrick Architecture stamped ‘Received September 18, 2017’, attached to Heritage Alteration Permit No. HAP00002 as Schedule ‘A’, and including the following variance, be approved, and staff be directed to issue the permit and register the notice on the title of the property located at PID 023-009-331, Lot B, Esquimalt District, Plan VIP60066 [429 Lampson Street]:
Zoning Bylaw 1992, No. 2050, Section 67.71 B. Site A (7)(a) Siting Requirements - Principal Building - A variance to the permitted perimeter of the principal building as shown on the Land Surveyor’s Certificate, prepared by McElhanney Consulting Services, stamped ‘Received September 9, 2013’, to allow the addition of a ‘new main level terrace and exterior grand stair’, a ‘new lower level infill below an existing upper level addition’ at the east side of the building and the removal of two exterior ‘existing stairs and doors’ at the front (west side) of the building, as detailed on Schedule ‘A’ [the Site Plan - Sheet A1.61] prepared by Merrick Architecture and stamped ‘Received September 18, 2017’.
Body
RELEVANT POLICY:
Official Community Plan Bylaw, 2006, No. 2646
Zoning Bylaw, 1992, No. 2050
Development Application Procedures and Fees Bylaw, 2012, No. 2791
Advisory Planning Commission Bylaw, 2012, No. 2792
Heritage Designation [429 Lampson Street] Bylaw, 2013, No. 2807’
STRATEGIC RELEVANCE:
This Request for Decision does not directly relate to a specific strategic objective.
BACKGROUND:
Appendix A: Heritage Alteration Permit No. HAP00002
Appendix B: Subject Property Map, Air Photo, HAP with Variance Mail Notice
Appendix C: CD No. 84 Zone, Heritage Designation Bylaw 2807, DP No. 7 Guidelines
Appendix D: Architect’s Drawings of exterior renovations
Purpose of the Application
The property owner is proposing a renovation to revitalize the historic English Inn (Manor House), a heritage designated building, including reinstating a full service restaurant, expanded bar lounge, and a new event space in the basement. The renovation includes extensive exterior work, which warrants a Heritage Alteration Permit, and changes to the footprint of the building, which requires a variance to Esquimalt Zoning Bylaw 1992, No. 2050, before a building permit could be issued.
Context
Applicant: Merrick Architecture
Owner: Aragon (Lampson) Properties Ltd., Inc. No. BC863902
Architect: Merrick Architecture
Property Size: Metric: 17653 m2 Imperial: 4.36 acres
Existing Land Use: English Inn and Resort
Surrounding Land Uses:
North: Multi-Family, Single and Two Family Residential
South: Bed and Breakfast, Single and Two Family Residential, Hither Green Park
West: Single Family and Two Family Residential
East: DND [Public/ Institutional]
Existing Zoning: Comprehensive Development District No. 84 [CD No. 84]
Existing OCP Designation: English Inn Mixed Use
Heritage Alteration Permit
The exterior of The English Inn [the Samuel Maclure designed Manor House] was protected by Esquimalt Council through a Heritage Designation Bylaw in 2013 [Bylaw 2807, Appendix ‘C’]. The community recognized the heritage value and character of this building and a ‘Statement of Heritage Value’ was written for the building [attached to Bylaw 2807, Appendix ‘C’]. Bylaw 2807 stipulates that any changes to the building’s exterior require a Heritage Alteration Permit, and that those changes should be consistent with the following:
(i) the statement of Heritage Value prepared by Donald Luxton & Associates, dated September 2013 [attached to Bylaw 2807, Appendix ‘C’];
(ii) ‘Standards and Guidelines for the Conservation of Historic Places in Canada’, © Her Majesty the Queen in Right of Canada, 2010, Second Edition;
[available on line at: http://www.historicplaces.ca/en/pages/standards-normes.aspx]
(iii) guidelines provided in relation to the Lands further to Development Permit Area No. 7 - English Inn [Appendix ‘C’].
The proposed changes to the English Inn could be categorized as a ‘rehabilitation’, within the Standards and Guidelines for the Conservation of Historic Places in Canada [SGCHP], as the Inn (Manor House), a tourist commercial use, has been struggling financially for many years. The Inn has had many additions and alterations over its lifetime, some less sympathetic to the original character of the building than others. Briefly, the proposed changes to the exterior include:
1. Removal of two ancillary stairways and doors, with the addition of one large and two small windows on the west façade [front, facing Lampson Street];
2. A new window, new French doors, a reinstated window, and an enclosure (with lattice) below a balcony on the south façade;
3. A new main level terrace and ‘grand’ exterior stairs, a refurbished door, and a reinstated door and window on the east side of the building;
4. An addition on the lower level of the east side of the building to support an older second storey addition;
5. A timber bracket added to an existing second floor balcony.
See applicant’s Heritage Application Permit Drawings in Appendix ‘D’.
The proposed changes, ‘are intended to give the impression that the components were all part of the original heritage design’, appear to be complimentary to the original building design and are generally consistent with the requirements of the heritage designation bylaw. Though the ‘Statement of Heritage Value’ deals exclusively with the original elements of the building that were designed by architect, Samuel Maclure, the community has come to value the Inn as it appears today, with the contributions by its many past owners adding to its heritage value. The proposed renovations would respect and balance both ideals while adding the new owner’s vision to the building.
The detailed plans with before and after pictures helps satisfy the SGCHP guideline to document any changes to the heritage building before and during the renovation process. The proposed renovations respect the composition, proportions, colour and texture of the existing building, while serving to help improve the energy efficiency of the building envelope.
The proposed renovations are consistent with the Development Permit Area No. 7 guidelines.
Comments from the Advisory Planning Commission [APC]
The proposed Heritage Alteration Permit plans were considered at the regular meeting of the APC held on August 16, 2016. The APC members were supportive of the application, expressing the importance of making the English Inn economically viable in the future as it is a real asset to Esquimalt. The APC passed the following motion in relation to the changes to the façade of the English Inn:
That the Advisory Planning Commission recommends to Council that the application for a Heritage Alteration Permit for the proposed changes to the heritage designated [English Inn] building as illustrated in the architectural drawings prepared by Merrick Architecture, stamped “Received August 9, 2016”, for the property at PID 023-009-331, Lot B, Esquimalt District, Plan VIP60066 [429 Lampson Street] be forwarded to Council with a recommendation of approval; with the assurance that any additions and alternations to the building follow the Standards and Guidelines for the Conservation of Historic Places In Canada and also respect the Heritage Value Statement for the property.
Time Line
- 2013: At the request of a previous owner the property is rezoned, creating Comprehensive Development District No. 84 [CD No. 84] and an OCP amendment is approved, creating Development Permit Area No. 7 - English Inn;
- July 20, 2016: Design Review Committee considered the Development Permit for Form and Character, water conservation and storm-water management;
- August 2016: The applicant decided to pursue a Zoning Text Amendment, as the permitted density for Site A will not accommodate the renovation of the Inn that they have planned;
- August 16, 2016: Advisory Planning Commission considered the Zoning Text Amendment, Heritage Alteration Permit, Development Variance Permit, Covenant Amendment [tree protection];
- September 12, 2016: Council granted 1st and 2nd reading to Zoning Text Amendment Bylaw No. 2880, and instructed staff to schedule the Public Hearing for the Bylaw;
- September 12, 2016: Council approved the proposed alterations to the Restrictive Covenant Amendment [tree protection] and authorized staff to allow alterations to the property’s landscaping prior to issuance of the Development Permit [allowing staff to issue tree cutting permits];
- October 24, 2016: Public Hearing for Zoning Text Amendment Bylaw No. 2880 is held;
- October 24, 2016: upon considering comments and all information provided leading up to the Public Hearing, Council adopted Zoning Text Amendment Bylaw No. 2880;
- November 2016 to August 2017: applicant and owner work with staff to clarify access and servicing issues including the use of Hither Green Park as an emergency access.
- August 21, 2017: Council tabled their consideration of the Heritage Alteration Permit, Development Variance Permit and Development Permit and advised the applicant to return with a revised fire access plan.
ISSUES:
1. Rationale for Selected Option
This project would revitalize the Manor House building and improve the commercial viability of ‘The English Inn’, an important heritage asset within Esquimalt, without degrading the heritage character of the building or the heritage context of the site. The APC has recommended approval of the significant changes contained within this application.
2. Organizational Implications
This Request for Decision has no organizational implications.
3. Financial Implications
This Request for Decision has no significant financial implications.
4. Sustainability & Environmental Implications
Renovations that improve the energy efficiency of older buildings should have positive environmental implications. Adding long term jobs within the community improves economic sustainability.
5. Communication & Engagement
As this application includes a variance, notices were mailed to owners and occupiers of parcels within 50 metres [164 ft.] of the subject property. Notices were mailed on September 18, 2017 [Appendix ‘B’] indicating that Council would be considering the requested Heritage Alteration Permit with Variance on October 2, 2017. To date, the Development Services Department has received no comments from local residents as a result of the notification.
ALTERNATIVES:
1. That Council resolves that Heritage Alteration Permit No. HAP00002 [Appendix A] be approved, and staff be directed to issue the permit and register the notice on the title of the property located at PID 023-009-331, Lot B, Esquimalt District, Plan VIP60066 [429 Lampson Street] (As in the RECOMMENDATION section).
2. That Council deny Heritage Alteration Permit No. HAP00002 [Appendix A], and provide direction to the applicant.