SUPPORTS ITEM NO. 1
P&E COMMITTEE AGENDA
SEPTEMBER 12, 1996
ADMINISTRATIVE REPORT
Date: August 27, 1996
Dept.File No. D'AG/RGL
TO: Standing Committee on Planning & Environment
FROM: Director of City Plans
SUBJECT: Amendments to Vancouver Heritage Register
RECOMMENDATION
A. THAT the Vancouver Heritage Register, dated August 1986, be
amended by deleting the addresses in Appendix A.
B. THAT the Vancouver Heritage Register, dated August 1986, be
amended to change the addresses listed in Appendix B.
C. THAT the Vancouver Heritage Register, dated August 1986, be
amended to add the addresses listed in Appendix C.
D. THAT the Vancouver Heritage Register, dated August 1986, be
amended to add the addresses of the Recent Landmarks listed
in Appendix D.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
A, B, C, D.
COUNCIL POLICY
On September 23, 1986, Council resolved that the Heritage Register
(formerly the Vancouver Heritage Inventory) be kept up to date and that
amendments be referred to Council on an annual basis.
On October 1, 1992, Council instructed the Director of Planning to
initiate a notification program for Recent Landmark buildings that were
proposed to be added to the Heritage Register.
PURPOSE
This report recommends that Council adopt amendments to the Vancouver
Heritage Register including the deletion of demolished buildings and
address changes for consistency of by-law administration. Also
recommended in this report is the addition
to the Heritage Register of publicly nominated buildings and the next
group of Recent Landmarks.
BACKGROUND
The Vancouver Heritage Inventory (VHI) was adopted by Council in August
1986. In December 1994, Council approved the VHI to be continued as
the Vancouver Heritage Register (VHR) under the provisions of new
provincial heritage legislation. Council last amended the Register on
May 18, 1995. This report brings the VHR up to date as of the end of
June 1996.
To summarize the extent of heritage activity in recent years, a total
of 15 buildings were designated in 1995 and 6 more buildings have been
designated in the first half of 1996. In addition, one building was
protected through a Heritage Revitalization Agreement in 1995 and 4
more buildings have been protected between January and June 1996. For
comparison, in 1994, 8 buildings were designated and in 1993, 12
buildings and 1 landscape were designated.
DISCUSSION
Deletions From the Vancouver Heritage Register
A review of Permits and Licenses data indicates that demolition permits
for 13 buildings listed on the Register were issued between January 1,
1995 and December 31, 1995 and demolition permits for 5 buildings
listed on the Register have been issued between January 1, 1996 and
June 30, 1996. A list of demolished buildings and their evaluation
category is attached as Appendix A. The total number of demolitions
for 1995 represents 0.6% of the Register. For comparison, in 1994, 20
buildings or 0.9% of the Register were demolished. During 1993, 22
buildings or 1.0% of the Register were demolished. Four buildings
which have been demolished prior to 1995, but were missed during
previous updating reports, will also be deleted. These buildings are
identified with two asterisks ** in Appendix A. The Heritage Register
will be amended to reflect these deletions.
Address Changes
A number of address changes have taken place since the Heritage
Register was last amended by Council. In order to maintain consistency
with Permits and Licenses data, it is recommended that Council amend
the Heritage Register by adopting the address changes listed in
Appendix B. The updates will reflect address changes made between May
1995 and June 1996.
Building Nominations
When the Heritage Register was adopted in 1986, Council supported a
public nomination process whereby buildings could be nominated for
addition to the Register. A total of 6 buildings were added to the
Register by Council in 1995. In 1994, Council added 21 buildings
(including 11 Recent Landmarks) and one public work that had been
nominated for inclusion on the Register.
Over the first half of this year, staff and the Vancouver Heritage
Commission have reviewed buildings that were publicly nominated. These
nominations were reviewed according to existing criteria which
includes architectural, historical and contextual significance, as well
as the remaining integrity of the resource. Of the 12 buildings
nominated, 8 are considered to be of sufficient heritage value to be
listed on the Vancouver Heritage Register. These are listed in
Appendix C. The owners of the buildings listed in Appendix C have been
notified and the implications of being listed on the Register have been
described in a letter and background material.
Recent Landmarks
The Recent Landmarks Program was initiated in 1990 to expand the scope
of the existing Heritage Register to include modern buildings (those
built after 1940) that are at least 20 years old. Prior to this
initiative, the Register only included buildings constructed before
1940. During the post-war period, an important collection of buildings
of local, regional and national significance that were notable for
their innovative design, technological features and social significance
were built in Vancouver. Approximately 220 buildings were reviewed as
part of the Recent Landmarks Program. From this, a priority group of
100 buildings was compiled. These findings were reported to Council in
October 1992, and the Director of Planning was instructed to initiate a
notification program of the 100 priority buildings. Recent Landmarks
that are added to the Heritage Register have the same status and are
eligible for the same incentives as those buildings and sites listed on
the Register.
The first group of 11 Recent Landmarks was added to the Register by
Council in January 1994. Included in this group were two Park Board
properties, the Bloedel Conservatory at Queen Elizabeth Park and the
Park Board Offices at 2099 Beach Avenue.
The building owners for this, the second group of buildings, have been
notified and the implications of being listed on the Register have been
described in a letter and background material. Most building owners
have discussed the listing with staff. Owners who have objected to
being listed on the Register are identified with an asterisk * in
Appendix D. Council has, in the past, added buildings to the Heritage
Register despite objections from building owners. Listing does not
prevent redevelopment of a site but does make it eligible for
preservation incentives and allows staff to explore possible retention
scenarios.
School Board Properties
The Vancouver School Board has been notified that two school buildings
Trafalgar Elementary School (4170 Trafalgar Street) and John Oliver
Secondary School (530 East 41st Avenue) are identified as Recent
Landmarks. On June 4, 1996 the School Board's Planning and Building
Committee received this information, understood the implications of
listing, and do not oppose the addition of these buildings to the
Register.
City-Owned Buildings
City-owned buildings proposed for listing include the Vancouver Museum
and Planetarium (1100 Chestnut Street), Queen Elizabeth Theatre and
Playhouse (Hamilton and Georgia Streets), and the Public Safety
Building (312 Main Street). In listing these buildings, the Director
of Civic Theatres and the Manager of Facilities Development note that
significant additions and comprehensive improvements, as noted below,
are planned for these buildings. Further, the usual incentives
available to heritage properties, such as by-law and parking
relaxations, density bonus and transfers are not immediately beneficial
to the City. The intention is to undertake cost-effective work which
improves and/or continues the functional use of these buildings while
being respectful of important architectural features.
Vancouver Museum and Planetarium
This complex of buildings is proposed to be added in the A evaluation
category. It is an important landmark both architecturally and
symbolically. The complex, three buildings anchored by a conical dome,
is a good example of the Expressionist style that was completed for the
Canadian Centennial in 1967. Significant portions of the buildings,
including the lacework panels and dome, are made of precast concrete.
Also of note is the Crab sculpture by George Norris. The buildings
serve as a focal point in a precinct of civic buildings in Vanier Park
and the Kitsilano Point waterfront.
The Museum and Planetarium will continue to play a role in the city s
cultural and historic fabric because of major initiatives to revitalize
both of the major institutions housed in the building. The Pacific
Space Centre Society is proceeding with a development plan which will
refurbish the traditional Planetarium, the Observatory, and create
exciting new exhibits, educational programs and supporting facilities.
The Museum is developing strategies to modernize exhibits, to improve
collection conservation and to accommodate major travelling
exhibitions. To date, architectural plans have focused on internal
renovations which expand the usable area by infilling existing interior
courtyards. The front of house, entry and support areas (i.e. shipping,
offices, meeting rooms) must be reworked to accommodate the new
programs. Until Museum planning work is complete, the full extent of
renovations will not be known. In particular, building by-law
requirements for upgrading to modern seismic and life/safety codes may
have exterior impacts. Renovations will be handled with sensitivity to
important architectural features, as well as, being cost-effective
functional improvements.
Queen Elizabeth Theatre and Playhouse
This major civic landmark is a very good example of the International
style that has remained relatively undisturbed. It is a product of a
national architectural competition held in 1954 and was designed by the
Montreal firm of Affleck, Desbarts, Dimakopoulous, Lebensold, Michaud
and Sise. The building design features a large glass and aluminum
rectangular box that is supported by a massive textured concrete
superstructure. A deep setback from Georgia Street provides for a
large open public plaza. The buildings were completed as the first
stage of a proposed multi-block civic centre that was to include a
concert hall and a convention centre that has not been realized. The
Theatre and Playhouse complex is to be added in the A evaluation
category.
Council has approved a long range plan which will gradually improve all
the civic theatres as performance venues and home to the city s major
performing arts organizations. Projects are undertaken as funding and
support become available, such as last year s upgrade of sound and
lighting systems. This year, two elevators are being installed at the
Queen Elizabeth Theatre to improve access for the physically
challenged. Work planned for this complex includes expanding
administration areas to accommodate resident performing arts
organizations; exterior expansion of the Playhouse lobby; extensive
remodelling of the Queen Elizabeth lobbies, auditorium and backstage
spaces; restaurant expansion and improvements to the plaza.
Initiatives of the Vancouver Opera could accelerate the schedule. A
consultant will be engaged to prepare a plan which will guide future
renovations with respect to important architectural features.
Public Safety Building
The building is proposed to be added in the B evaluation category.
It is an early example of the International style in Vancouver and is a
well known landmark in a precinct of public buildings. Some of the
more notable design features include the building s orientation to the
corner of the site, the concrete framing and window pattern that
emphasize the horizontal and the six storey addition to the south that
was designed and detailed to be complementary to the original structure
and is an integral part of the building composition. Townley and
Matheson architects designed the building (1953) and the addition
(1954) and were also responsible for designing City Hall, the Garden
Auditorium at Hastings Park and several buildings on the Vancouver
General Hospital site.
A program of renovating these outdated police facilities, which began
in 1995, will be completed this year. The work on the first four
floors includes renovations to offices, laboratories, the range and
stores, with the addition of modern equipment and computers. Extensive
renovations may be required throughout the building as operational
needs of the police and their custodial duties changes.
The following section will discuss the properties for which staff have
received objections to their buildings being listed on the VHR:
Shaughnessy Hospital Site
There are four Recent Landmarks identified on this site including two
A's: the Main Building (with Beatrice Lennie sculptural panels) and
Jean Matheson Pavilion; and two B's: the Steam Plant and Acute Wing.
These buildings were first proposed for addition to the VHR in 1994.
At that time, redevelopment plans for the site had not been developed
and the hospital planners urged staff to postpone listing until such
time as the heritage rehabilitation of the buildings could be more
fully considered. Staff agreed to this postponement and are now seeking
Council support for the listing of the buildings given the plans for
the hospital site are more fully evident. There has been discussion
about the retention of the Jean Matheson Pavilion (1946) for some use
beyond the hospital's programmatic requirements, but as yet no serious
study has been done on its rehabilitation potential. Funds are in place
for the demolition, yet Planning staff feel that retention and viable
re-use of this building is worth serious consideration. Listing on the
VHR could be of help to the hospital plan by making heritage
relaxations available to the site.
The other aspects of the Shaughnessy Hospital site of heritage value
are the original portion of the Main Building (1940), with the Beatrice
Lennie stone panels - for which there has been considerable interest in
their retention. The Steam Plant (1957), with its smokestack is a
landmark on the site; one which the hospital intends to retain (and
expand). The Acute Care Wing (1960) has a distinctive facade which
relates to the modernist style of the hospital campus and may be worthy
of retention in some form.
Planning staff discussed on several occasions the heritage value of
these buildings with the hospital planners and on balance, feel that
listing of these four buildings on the VHR could be of benefit in the
planning and redevelopment stage of the hospital site and urge their
inclusion on the VHR.
BC Sugar Head Office
The administration offices of BC Sugar are one of the city's important
and little-known treasures of the west coast modernist design.
Architects Semmens and Simpson designed this building in 1952 and it is
largely intact, complete with period lobby. The owners have objected
to listing of the building based on the idea that it would limit the
flexibility in going on about their business. There are no
redevelopment plans for the site at present. Staff feel that listing
the building would allow additional flexibility through the use of
heritage incentives.
RCMP Headquarters
Originally built as the Worker's Compensation Board Clinic and Offices
by AC Smith in 1953, this is one of a handful of heritage structures in
the Oakridge-Langara area. The building typifies the era of
development in this part of the city and has a handsome international
style composition. While the RCMP, as a senior level of government,
does not need to follow the City's guidelines such as the VHR,
inclusion on the Register would be of a symbolic nature. The RCMP has
indicated that a review of the Fairmont Headquarters Complex (including
657 West 37th Avenue) is presently underway and feels that listing at
this time would be premature. Heritage listing may become of some
value in seeing this local landmark retained as the building would be
eligible for preservation incentives.
The Heritage Commission has reviewed the evaluations for the public
nominations and the Recent Landmark buildings listed in Appendices C
and D and support their inclusion on the Heritage Register. The recommended changes to the Register can be summarized as follows:
Buildings Buildings Buildings Buildings
on Register Demolished Added Remaining
January in 1995 and to Register on
1995 through * Register
June 1996 1995-June June 1996
1996
"A" 241 - 8 249
Buildings
"B" 1,124 7 12 1,129
Buildings
"C" 797 12 - 785
Buildings
TOTAL 2,162 19 20 2,163
* includes addition of three buildings approved in December 1995
CONCLUSION
This report recommends that the Vancouver Heritage Register be amended
to delete demolished buildings and to reflect changes that have
occurred to the City's street files. The report also recommends that
buildings that have been nominated by the public and the next group of
Recent Landmarks be added to the Register.
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