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R E P O R T Development Services

To: Mayor Coté and Members of Council Date: 1/16/2017

From: Jackie Teed

Acting Director of Development

Services

File: 13.2510.12

Item #: 39/2017

Subject: 326 Arbutus Street: Heritage Alteration Permit No. 86 to Permit

Demolition – Council Consideration

RECOMMENDATION

THAT Council issue Heritage Alteration Permit No. 86 to permit demolition of the

building at 326 Arbutus Street.

EXECUTIVE SUMMARY

On June 16, 2016, Council adopted a Heritage Control Period Bylaw for the Queen’s Park

neighbourhood, which is in effect until June 16, 2017. Per that bylaw, all single detached

dwellings within the Queen’s Park neighbourhood that were constructed on or before December 31, 1966 must receive a Heritage Alteration Permit (HAP) in order to demolish

the building.

The HAP demolition application process provides a mechanism within which Council may

consider the proposed demolition against the goal of the Control Period, while also ensuring

an applicant has the opportunity to make a case for their needs. The Control Period Bylaw

authorizes Council to reject demolition applications should it believe the demolition would

not be consistent with the purpose of the Bylaw.

The application has been reviewed by the Technical Review Panel and the Community Heritage Commission, as per the Council-endorsed review process for HAP applications

under the Control Period. Both groups support the HAP demolition application. Given this,

21.

City of New Westminster January 16, 2017 2

Agenda Item 39/2017

staff recommends that Council issue the HAP to permit demolition of the building at 326

Arbutus Street.

PURPOSE

This application would permit the City to issue the demolition permit for the existing house

at 326 Arbutus Street. The applicant’s letter of intent is attached as Appendix 1. The purpose

of this report is to request that Council issue the Heritage Alteration Permit for demolition.

POLICY AND REGULATIONS

Queen’s Park Heritage Control Period

Section 608 of Part 15 of the Local Government Act provides that a local government may

identify a specific area for heritage conservation planning by adopting a bylaw declaring a

period of up to one year during which all properties within that area would be subject to

temporary heritage protection.

On June 15, 2016, Council adopted the Queen’s Park Heritage Control Period Bylaw. Per that bylaw, all single detached dwellings within the Queen’s Park neighbourhood that were constructed on or before December 31, 1966 must receive a Heritage Alteration Permit

(HAP) in order to demolish the building.

The Control Period Bylaw authorizes Council to reject demolition applications should it

believe the demolition would not be consistent with the purpose of the Bylaw, where

otherwise the City would be required to review and issue them.

Heritage Alteration Permit

A Heritage Alteration Permit (HAP), allowed through Section 617 and 618 of the Local

Government Act, is a permit issued by either Council or its delegate that authorizes

demolition, alterations or other actions for property that is protected heritage property under

a Control Period.

Council may refuse to issue an HAP should they believe that the work proposed is contrary to the purposes of the Control Period. However, should a permit be denied, the City must

inform the applicant of the requirements or conditions under which the property could

achieve the allowable density.


Agenda Item 39/2017

BACKGROUND

Goal of the Control Period

The Control Period is not a moratorium on demolitions. Instead, it provides a structure wherein Council considers HAP demolition applications against the goal of the Control

Period, while also ensuring an applicant has an opportunity to make a case for their needs.

The goal of the Control Period is to control the loss or alteration of dwellings and street

character in the neighbourhood while exploring the implementation of a Heritage

Conservation Area.

HAP Application Review Process

On September 19, 2016, Council endorsed a review process, including a requirement that

HAP demolition applications provide a Heritage Assessment by a certified heritage

professional as part of the application. Additionally, HAP demolition applications would be

reviewed by both a Technical Review Panel, established by the City, and the Community

Heritage Commission (CHC).

Role of Technical Review Panel

As per the endorsed review process, HAP demolition applications are reviewed by a

Technical Review Panel established by the City. The Technical Review Panel’s comments are forwarded to Council for their use in consideration of the application. The Review Panel

evaluates HAP applications on technical, practical and design aspects, and against the City’s interim evaluation criteria.

On September 19, 2016, Council endorsed the use of the Summary of Historic Values,

developed by the Queen’s Park Neighbourhood Heritage Study Working Group, as a

criterion against which the Technical Review Panel would evaluate HAP demolition

applications (Appendix 2).

The Review Panel also conducts a preliminary evaluation of whether the subject property

would be able to achieve the permitted floor area on the site if the application were to be

rejected by Council.

Role of Community Heritage Commission

As per the Control Period Bylaw and the endorsed review process, HAP demolition

applications are reviewed by the Community Heritage Commission (CHC) who provide a

recommendation to Council. As representatives of the community’s voice on heritage issues, the CHC evaluates HAP applications against the principles of heritage conservation, and the

City’s heritage policies.


Agenda Item 39/2017

DISCUSSION

Property Description

House Statistics

Year of construction: 1950

Floor space: 136 square metres (1,462 square feet)

Storeys: 2 (including basement)

Floor Space Ratio: 0.263 (0.5 permitted)

Site Coverage: 13.15% (35% permitted)

The house is not listed on the City’s Heritage Register, nor is it legally protected as a Designated heritage property.

Photographs of the house are included as Appendix 3.

Street Context

The property in question is located in a collection of homes built between 1937 and 1951on

the north end of Arbutus Street. 326 Arbutus Street is one of the newest in that collection and

has the lowest floor space ratio (FSR) of all houses on that street.

A Site Location Map can be found in Appendix 4.

Heritage Assessment

Heritage Value

An assessment of the heritage value of the 1950 building on site was provided by Leslie

Gilbert, Heritage Consultant, and is included as Appendix 5. In summary, though the

building maintains its original form and massing, which complements the size and scale of

other houses on the street, the building is not a good example of a particular style, and does

not hold high heritage value. The report identified that little to no relationship to social,

spiritual, scientific, or cultural events, people or values were found.

Site Statistics

Frontage: 15.24 metres (50.00 feet)

Average Depth: 33.89 metres (111.19 feet)

Area: 517 square metres (5,560 square feet)


Agenda Item 39/2017

Building Condition

A preliminary conditions assessment was provided by Leslie Gilbert, Heritage Consultant.

The evaluation of the building’s condition can be found on pages 3 and 4 of the Heritage Assessment (Appendix 5). In summary, the house at 326 Arbutus Street has been continually occupied and is generally in good physical condition. However, many small changes to the

building were made over time, including the removal of original materials, which have

compromised its historic integrity.

Technical Review Panel Comments & Recommendation

The Technical Review Panel reviewed the HAP application for demolition at 326 Arbutus

Street on December 13, 2016. The Panel assessed the application against the evaluation

criteria in four ways:

1) heritage value; 2) contribution to streetscape; 3) integrity of building; and 4) potential for

permitted density to be achieved through renovation without loss of heritage value.

1) Heritage Value: Low

Comments— The era of construction (1950s) is referenced in the relatively unornamented and

utilitarian aesthetic of the house in question.

Unornamented house styles, such as Modern (1950s), are also important to the Queen’s Park neighbourhood, and contribute to the historically significant variation of architectural styles in the area.

However, the house in question is not a good example of the Modern era or design aesthetic; little articulation of the Modernist style can be seen.

No associations to historical figures, events or social movements were found at this time.

Overall, the heritage value is not substantive.

2) Contribution to Streetscape: Low

Comments –

The house is one of a small grouping, but no apparent historical significance is associated with the grouping.

The consistent and wide setback of the houses on this street bring continuity to the streetscape.

Value to the streetscape is associated with the massing of the house as it relates to other similar houses on the street.

3) Integrity of Building: Medium

Comments—

The house retains its original scale and massing.


Agenda Item 39/2017

Architectural elements of the house have been modified. As per above, few elements of the architectural style are present. Overall, though repairs are required, the house is structurally in good condition.

4) Potential to Achieve Density while Retaining Heritage: High

Comments—

Though the floor space ratio is currently low, there is sufficient available area on the site to accommodate the required additional floor space, without altering

setback and visible scale of the building.

Although the Panel indicated the house could likely be modified to achieve its maximum

allowable density, the heritage and streetscape values were deemed too low to justify

retention. As such, the Technical Review Panel unanimously agreed to recommend that

Council support the Heritage Alteration Permit for the demolition of 326 Arbutus Street.

Community Heritage Commission

The Community Heritage Commission (CHC) reviewed the HAP application for demolition

on January 4, 2017. CHC members indicated that the value of the house was in its contribution to the variety of housing forms in the Queen’s Park neighbourhood, and its

relationship to an enclave of smaller homes. Similar to the Panel, members commented that

the house on its own was not a great example of a particular style and did not relate strongly

to a social or cultural movement.

The CHC passed the following resolution, with two members voting in opposition:

THAT the Community Heritage Commission recommends that City Council support the

Heritage Alteration Permit for the demolition of 326 Arbutus Street.

Conclusion

Given that the house does not have a high level of historic integrity, that the assessed

heritage value is low, and that both review groups support the demolition, staff recommends

that Council issue the Heritage Alteration Permit for demolition of the building at 326 Arbutus Street.

NEXT STEPS

Should Council reject the HAP demolition application, the City must inform the applicant of

the requirements or conditions under which they could achieve their allowable density on

that site. Should the applicant proceed with a renovation, the applicant would require a

second HAP for the renovation, which would include evaluating the design and contextual

appropriateness of the work.


Agenda Item 39/2017

Should Council approve the HAP demolition application, the applicant would require a

second HAP for the construction of the new house, which would include evaluating the

design and contextual appropriateness of the proposed new house.

OPTIONS

The following options are available for Council’s consideration:

1) That Council issue Heritage Alteration Permit No. 86 to permit demolition of the


2) That Council reject Heritage Alteration Permit No. 86 to permit demolition of the


3) That Council provide staff with alternative direction.

Staff recommends Option 1.

ATTACHMENTS

Appendix 1 - Letter of Intent Appendix 2 - Queen's Park Summary of Historic Values

Appendix 3 - Photographs of Existing House

Appendix 4 - Site Location Map

Appendix 5 - Heritage and Conditions Assessment, by Leslie Gilbert

This report has been prepared by:

Britney Quail, Planning Analyst

This report was reviewed by:

John Stark, Acting Manager of Planning


Agenda Item 39/2017

Approved for Presentation to Council

Jackie Teed

Acting Director of Development

Services

Lisa Spitale

Chief Administrative Officer

Appendix 1

Applicant's Letter of Intent

Corporation of the City of ^ NEW WESTMINSTER

#

Supporting Document - Owner's Statement 326 ARBUTUS STREET

NEW WESTMINSTER, BC

Neighbourhood: Present Owners

/ Occupants: Construction date: Architect/Builder: Heritage Designation: Heritage Register:

Queen's Park

Martin Kovar & Tsz Kin (Bernard) Lee 1950 Unknown RECEimfi N o DEC - 7 2013 No (

PLANNING i ft

Dear City of New Westminster Council Members, Professionals and Support Team,

Thank you for taking part in the evaluation process of 326 Arbutus Street.

Let us introduce ourselves: Martin is a City of New Westminster employee with the Parks and Recreation, working for the Horticulture department in Queen's Park. Bernard is a medical professional treating patients at the BC Cancer Agency.

Now in our early forties, we chose New Westminster as our permanent base. In late spring 2016, after an extensive search lasting well over one year, we purchased a property in Queen's Park with the intention to build a "forever" home. Home close to work and services, place where we can live and age happily, accommodating our changing needs for the decades to come. We have entered into a contract with New Westminster based architect Randy Bens to help us realize the project inspired by mid-century style architecture, true to the current house time of origin and already well represented on nearby streets. Complemented by Martin's professional experience as residential landscape designer, we aim to create a well integrated house enhancing the streetscape and enriching the urban fabric of our neighbourhood.

We love Queen's Park and specifically looked for a post-war bungalow lacking apparent historic value and modern updates which we would feel comfortable removing. Our recently purchased 1950 infill house met this criteria until the Heritage Conservation Area provisions suddenly came into effect shortly after we gained possession. City staff, namely Planning Analyst Britney Quail, have been most helpful in providing us with information and guidance.

Due to the relatively brief history of our short no-through street, little was found about the conversion of a back service lane to the current Arbutus Street. We thank Heritage Professional Leslie Gilbert for uncovering the names of the first house inhabitants in the 1950s. Intending to stay for the long term and contribute to the street future, we find much value in knowing what preceded our presence here. Please support us in our goal and gain two community-oriented life-long residents.

/K1K Thank You,

Martin Kovar & Tsz Kin (Bernard) Lee

Appendix 2

Queen’s Park Summary of Historic Values


#

Summary of Historic Values for the Queen’s Park Neighbourhood

History of the neighbourhood

Neighbourhood layout designed by the Royal Engineers City as capital city; the grand boulevards on Second and Fifth Streets Residents of the neighbourhood who became well-known in politics and business Stories from the past Physical remnants from the past (bricks in roads, granite curbs, tram tracks) Civic, religious and military institutions

Regional and local parks

Queen’s Park: its importance as a regional park, home to various sports teams includingthe Salmonbellies lacrosse team

English common-style park (Oliver Park) Tipperary Park, Friendship Garden and other small parks

Formal street design

Grid pattern established by the Royal Engineers Different widths of streets Boulevards on larger streets Short streets and angular nature of Park Row Walkability

Residential scale and setting

Grand homes and their setting Large open formal gardens Small homes and their setting Blend of large and small homes that work well together The neighbourhood is a complete neighbourhood and not just a collection of homes Common palette of materials which gives a sense of cohesion to the buildings Views of the Fraser River

Landscape

Mature trees Mature private gardens Public gardens, treed areas and natural areas of Queen’s Park Hanging baskets Boulevard trees

Doc # 598557 Page 1

Appendix 3

Photographs of Existing House


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Site Photographs - Facades 326 ARBUTUS STREET

NEW WESTMINSTER, BC

Neighbourhood: Queen’s Park Present Owners / Occupants: Martin Kovar & Tsz Kin (Bernard) Lee Construction date: 1950 Architect/Builder: Unknown Heritage Designation: No Heritage Register: No Front Façade – East

Side Façade – North Captured from neighbour’s driveway.

Side Façade – South Whole

Side Façade – South Partial towards Front

Side Façade – South Partial towards Rear

Side Façade – South – NOTE: Not possible to capture face on due to limited side yard width. Grade change at property line; neighbouring residence roof elevation approximately matching fence height.

Appendix 4

Site Location Map


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City of New Westminster - 326 Arbutus Street

This map is a user generated static output from an Internet mapping site andis for reference only. Data layers that appear on this map may or may not be

accurate, current, or otherwise reliable.

1,000

CNW GIS Services

0.1

1:

NAD_1983_UTM_Zone_10N

Kilometers0.10 0.03

Appendix 5

Heritage and Conditions Assessment, by Leslie

Gilbert


#

HERITAGE ASSESSMENT 326 ARBUTUS STREET

NEW WESTMINSTER, BC

Neighbourhood: Queen’s Park Original Owner: William J. Mont Construction date: 1950 Architect/Builder: Unknown State: Occupied Heritage Designation: No Heritage Register: No

Front elevation of 326 Arbutus Street

Property Description The house at 326 Arbutus Street is a modest one story and basement wood frame dwelling. With a small footprint and low site coverage, the house retains its original scale and massing in keeping with other houses on Arbutus Street. Typical of postwar housing, it is characterized by having a functional design with little exterior adornment.

A building permit was issued in September 1949 to construct the house at 326 Arbutus Street at a cost of $5,500. Another building permit was issued in 1987 to construct a double car garage in the back yard, as accessed from Arbutus Street. There are no additional City records or permits for this property, indicating that there have not been significant improvements to the house since it was constructed, except for window replacement and periodic maintenance. Neighbourhood Context and Streetscape The house at 326 Arbutus Street is located mid-block on the west side of Arbutus Street in the Queen’s Park neighbourhood. Queen’s Park is a prestigious residential neighbourhood in New Westminster noted for its large character homes on tree-lined streets. Arbutus Street is not a through street and historically functioned as a lane for properties fronting onto First or Second Streets. In 1909, the lane was officially renamed Arbutus Street. Arbutus Street slopes gently downhill offering partial views beyond New Westminster. Properties are relatively small in size and houses built close to the street; several have driveways in the front yard. As Arbutus Street is a narrow thoroughfare, it supports little vehicular traffic. Of the 11 houses on Arbutus Street, only three are listed on the Heritage Resource Inventory, at 316, 318 and 320 Arbutus Street where it meets Emory Street. The subject property has no visual linkage to these heritage properties; curves in Arbutus Street effectively create two separate streetscape environments. 326 Arbutus Street is one of four houses built in the 1950s on the west side of Arbutus Street on small infill lots. The lot was created in 1949 by subdividing the rear yard of the property fronting onto Second Street. Ownership History The first occupants of 326 Arbutus Street were Mary J. Mont (1868 –1953), a widow, and her son William Joseph Mont (1907 – 1965) who was employed at the Hotel Vancouver. The 1950 building permit was issued to William Mont as owner, but does not include the name of the builder or architect. As little is known about the residents of 326 Arbutus Street, the property cannot be identified as having any heritage value for social or community associations. Unfortunately, no historic photos of the property or of the Arbutus Street streetscape were discovered while researching the property.

Character Defining Elements The house at 326 Arbutus Street was constructed in the Minimal Traditional style of architecture (circa 1935 – 1950) developed in response to economic conditions of the 1930s. The house could be described has having a modern and utilitarian design devoid of decorative detail. It was constructed economically to meet the pent up demand for family housing after WWII. Elements that define the character of 326 Arbutus Street include: • Location in the Queen’s Park neighbourhood on a quiet street among houses of

similar vintage • Proximity to Queen‘s Park, Sullivan Park and the tree-lined Second Street boulevard • Residential scale and massing as expressed by one storey height with basement

similar to other houses on the street • Low pitched cross hipped roof with overhang • Windows flush with exterior walls, a large picture window • Asymmetrical front façade with recessed wing Condition Assessment The house at 326 Arbutus Street has been continually occupied and is generally in good physical condition. Over the years, however, previous owners have attempted “do-it-yourself” improvements to the building compromising its integrity. Exterior cladding: the stucco is generally in good condition but there is evidence of cracking especially near the base of the house near the chimney. Some cracks have been visibly patched and repainted. Cracks in the stucco could compromise the structural integrity of the house.

Windows: Most windows on the house have been replaced with various sized vinyl slider. In most cases, the replacement windows are smaller in size than the original windows, often resulting in crudely patched stucco around the replacement windows.

Foundation: boards at the base of the house have rotted due to moisture penetration.

Moisture and heating issues: the house is experiencing drainage problems with debris impeding water drainage near the back door. In addition, the house lacks proper insulation and is expensive to heat in the winter months.

Toxicity: main floor ceiling tiles contain asbestos and formaldehyde is present in the kitchen wood fibreboard and particleboard. This photograph shows asbestos tape on basement ducts.

The owners have offered to repurpose elements of value on the property, such as the decorative metal mail slot in the front door and interior glass doorknobs. They also intend to retain landscaping where feasible, including a large maple tree on the property. Concrete foundation walls will be recycled as dry stacked retaining walls, reducing the environmental footprint by reducing trucking and landfill waste. In conclusion, the main value in 326 Arbutus Street is the retention of its original form and massing which complements the size and scale of other houses on the street. As it was constructed in a utilitarian style with little adornment typical of postwar tract houses, the house is a product of its times but cannot be described as having any social value. It was not found to reflect spiritual, scientific, cultural or aesthetic heritage values. Assessment Prepared by Leslie Gilbert, Heritage Consultant December 6, 2016

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