F - CivicWeb Ladner Heritage... · Heritage Conservation Area Designation P15-07 Implications: Page 4 of 4 October 20, 2017 Financial Implications - While some work will be done in

To: Mayor and Council

City of Delta COUNCIL REPORT

Regular Meeting

File No.:

From: Community Planning & Development Department

Date: October 20, 2017

P15-07

Ladner Heritage Conservation Area Designation

The following report has been reviewed and endorsed by the City Manager.

• RECOMMENDATION:

F.OB

THAT the attached Scope of Work for Ladner Heritage Conservation Area Designation be endorsed.

• PURPOSE:

The purpose of this report is to present a draft Scope of Work to identify new or expanded Heritage Conservation Areas and guidelines in Ladner. The review and expansion of Heritage Conservation Areas for Ladner was an implementation action stemming from the recent adoption by Council of an updated Heritage Strategy for Delta.

• BACKGROUND:

Site Description and Context: . The boundaries of the area for the purpose of identifying new Heritage Conservation

Areas a're shown on the map entitled "Ladner Heritage Control Period Boundaries" and are generally defined by:

North: Fraser River and Crescent Slough East: Highway 17 A plus one property to the east near 61 Street South:The ALR boundary as shown West: 40 Street

A map of the study area and maps showing properties on the Heritage Inventory are included in Attachment A.

Page 2 of 4 Heritage Conservation Area Designation P15-07 October 20, 2017

Council Policy: . The Official Community Plan Objectives and policies to be considered in creating new Heritage Conservation Areas and guidelines for Ladner include:

• Schedule A; Policy 2.7.5: Define and prepare guidelines for Heritage Conservation Areas where there is a concentration of heritage buildings which should be protected, and where new development should be in keeping with the existing character of the area.

• Schedule B.3: o Objective B: Reinforce Ladner's village character by using the

design features of buildings, streets, public spaces, and entrances in and around the historic village.

o Policy B.1: Use building design to reinforce the historic character of the village core.

o Policy B.6: • Use Heritage Conservation Areas to protect the residential

appearance of existing special neighbourhoods containing historic or character houses; and

• Use heritage conservation techniques, including regulations and incentives, to encourage preservation of site identified as being of heritage significance which are located outside existing and proposed Heritage Conservation Areas.

An updated Heritage Strategy and Action Plan was recently endorsed by Council and included the adoption of Heritage Control Period Bylaw NO.7 492 to protect properties in Ladner which are described in Delta's Heritage Inventories. The Local Government Act enables Heritage Control Periods for the purpose of heritage conservation planning for an identified area and are valid for one year only. The Ladner Heritage Control Period is valid until June 12, 2018.

• DISCUSSION:

Proposal: This report seeks Council's endorsement of the attached Scope of Work, which is part of the implementation of the Heritage Action Plan. The Scope of Work provides the framework to identify the heritage characteristics of one or more proposed new Heritage Conservation Areas in Ladner. The work would also involve setting out guidelines to facilitate historic preservation while allowing for some change and development consistent with the special character of each Heritage Conservation Area. The work will result in a bylaw to be presented to Council to designate new Heritage Conservation Areas and Guidelines in Ladner.

Heritage Conservation Area Designation P15-07

Page 3 of 4

Heritage Conservation Areas and Guidelines:

October 20,2017

While the current Heritage Control Period applies to all heritage properties within Ladner, it offers protection to Ladner heritage properties for a period of one year only. Designation of a Heritage Conservation Area or Areas would secure long-term protection for heritage places. Designation would also reinforce the historic character of an area through guidelines that require new development to incorporate this character in such things as lot patterns, building setbacks, landscaping and design features of buildings.

Section 614 of the Local Government Act details the requirements for designation of any Heritage Conservation Area. These include:

• describing the special features or characteristics that justify the designation, • stating the objectives of the designation, • specifying guidelines as to how objectives are to be achieved, • describing exemptions from permit requirements, • listing the buildings, structures, land or other,features in an area to be protected,

and • identifying features or characteristics that contribute to the heritage value or

character of an area.

The attached Scope of Work outlines these requirements as well as consultation requirements to be met. The Scope of Work includes consultation with the Delta Heritage Advisory Commission through the study process.

Community Consultation: The proposed Scope of Work specifies the following consultation requirements:

• Delta Heritage Advisory Commission both at the beginning of the study and prior to submission of a final draft document;

• Owners of heritage properties within the study area; • Owners of residents in proposed Heritage Conservation Areas;

• Local residents and businesses; and • Other stakeholders as identified by City of Delta staff.

Heritage Advisory Commission Comments: The Heritage Advisory Commission reviewed the Scope of Work at its meeting on October 11,2017. They were advised that the Delta Heritage Advisory Commission is to be consulted through this process. A resolution to support the proposed Scope of Work was adopted with the request that the study consider not simply heritage buildings but also landscapes, landmarks and cultural history in determining possible new Heritage Conservation Areas. The Scope of Work was amended to incorporate this direction.

Heritage Conservation Area Designation P15-07

Implications:

Page 4 of 4

October 20, 2017

Financial Implications - While some work will be done in house by staff, it is anticipated that a heritage consultant will be retained to undertake research, site evaluation, and prepare draft guidelines. The Community Planning and Development studies budget would have sufficient fundsto engage a consultant as it is anticipated that the cost of the work expected from a consultant would be less than $50,000. Any amount in excess of $50,000 would be brought forward for Council's consideration and approval.

Intergovernmental Implications - Following adoption of a bylaw to designate new Heritage Conservation Areas and Guidelines, Delta would be required to notify the heritage minister within 30 days after the adoption.

South Delta Business Sustainability Implications - This proposal adheres to recommendations contained in the South Delta Business Sustainability Strategy, which includes recommendations to leverage the heritage feel of Ladner and create design guidelines for developer certainty.

• CONCLUSION:

This report seeks Council's endorsement of the attached Scope of Work in order to advance Ladner Heritage Conservation Area Designation and allow completion before the end of the one year Heritage Control Period. Adopting the recommendations in this report would be consistent with the Heritage Action Plan endorsed by Council in May, 2017.

~-t,VJV"""'" Director of Community Planning and Development

Department submission prepared by: Susan Elbe, Planner SE/nd

• ATTACHMENTS:

A. Map of Study Area and Heritage Inventory Properties B. Draft Scope of Work .

Location Map: Heritage Conservation Areas and Guidelines Study

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Attachment A Page 1 of 4

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Properties on Delta Heritage Inventories:

West of Arthur Drive

=, ,J -Property included on Delta Heritage Inventories



West of 46A Avenue

"~J -Property included on Delta Heritage Inventories


O_-==~~==:I1IIi2ii50m SCALE


East of Arthur Drive

w,,». ~lJ -Property included on Delta Heritage Inventories


SCOPE OF WORK

Attachment B Page 1 of 7

LADNER HERITAGE CONSERVATION AREA DESIGNATION

1.0 Introduction

1.1 Purpose This Scope of Work constitutes a work program to research, identify, consult and formulate guidelines for one or more new Heritage Conservation Areas in Ladner in accordance with Section 614 of the Be Local Govemment.Act.

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The project would identify and assess the heritag~~tlaracteristics of one or more proposed new Heritage Conservation Areas ilJL.aglieranpgetermine if there is a rationale for the creation of new Heritage Con~ervation Areas., The work would include guidelines to facilitate preservati9r1 qfheritage charactefwhile allowing for some change and development consistent'Nith the distinctive ql1cllities of each Heritage Conservation Area.

1.2 Background and Project A~ea

1.2.1 Background .. Delta's heritagerrP().urpes are a valuable partofco~mlJnity pride, identity, the local economy, tourist ·potel1tial and provide a tangible link to the past in this community. These heritag~Jesource~include architectural, historical, landscape features and cultLlr~lchar.#8t(3.ril:)tics thatshaped the community. In May and June of 2e1?;D~lt~,.pour,Ci.I'~~oPtedahuPdatedHeritage Strategy and Action Plan, whichinciudedacioPtion.of.~ Heritage,:qontrol Period bylaw to protect all properties in Ladner which~ro~,describedin Delta's Heritage Inventories.

The heritagr

control period focuses on Ladner Village in order to address recent developrr{entC;lctivities ip~n area which is largely defined by its heritage character. The one-year til11e perioclprovides time to plan and implement additional Heritage Conservation AreGl~' bylaws and policies for Ladner Village. While the heritage control period applies to all heritage properties within Ladner, a future heritage conservation area or areas may be refined based on the common features or values that define the heritage character of that area.

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1.2.2 Project Area


Ladner is located within The City of Delta. The boundaries of the project area for the purpose of identifying new Ladner Heritage Conservation Areas were established in Heritage Control Period Bylaw No. 7492. The Project Area is shown in the bylaw map below and is bounded by:

North: East: South: West:

Fraser River and Crescent Slough Highway 17A plus one property to the east near 61 Street The ALR boundary as shown 40 Street

Ladner Heritage Control Period Boundaries

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1.2.3 Context

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The population of Ladner based on the 2016 census was 22,193, increasing only 0.1 percent since 2011. There are a total of 8,644 private dwellings in Ladner based on the 2016 census, a majority of which are single family dwellings. Ladner accounts for a small portion of Delta's total land area, but has almost 22 percent of Delta's population ..

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1.2.4 Historical Information


Archaeological evidence has shown that, up to 9,000 years ago, First Nations people travelled along the Fraser River and established summer camps at various locations in Delta. Regular inhabitation of areas around Boundary Bay and North Delta appears to have begun approximately 4,000 years ago.

The Provincial Archaeology Branch indicates only two recorded sites of aboriginal occupation in the Ladner area, Chillukthan Slough and Ladner Marsh. It is thought that regular flooding of the area by the Fraser River allowed for only short-term, seasonal visits by First Nations people. Nonetheles~,Jhere is evidence of a native fishery at Ladner Marsh. Chillukthan Slough w9~aNTmportant transportation route and retains the name given to it by the Coast$C:Wsn;people. Early maps of Chillukthan Slough indicate that it was wid~rth(:m itisjoqay and flowed from the Fraser River through to the waters of F«)beris Bank.

The Ladner brothers, Thomas and Wiilic:i~' were the first~uropyan settlers in the area. In 1888, the first town site subdivisi9n plan'A'a~ establishe~. The Ladner Harbour waterfront was historically the fOCU$9fthe(community ofL9dner but, as transportation linkages improved over the years,this changed with the commercial focus moving to other village streets and later t6th~malls on Elliot Street and Ladner Trunk Road. The LadnerViliage Core has,h()'IIever, retained a unique form and chara9t~rwith>an intimate scale, variety of shops and services, a mix of building form~illbludinghistoric building§ and is bounded by waterways on its north and easfsj9~s. As th~ community continues to grow and develop, the buildings and streetscapesthgt represented a way of life are under redevelopment pressuteandherit~gecharaCtel'ds>lJ~ing ·Iost.

1';.~. ~:I:v~~tMuni~I~~leOliC;:~ Offiei9J,pommunity PI~npolici~§peveloped over the years have recognized the value6{tadner's herit~ge andhave sought to reinforce this historic character. This includes:policies within the Ladner Area Plan as well as in Development Permit Guidelines andtvyo Heritage Conservation Area Guidelines.

The Official Commu'l]ity Plan Objectives and poliCies to be considered in creating new Heritage Conservation Areas and guidelines for Ladner include:

• Schedule A, 2.7 Objective: Identify and preserve Delta's significant heritage resources.

• Policy 2.7.5: Define and prepare guidelines for Heritage Conservation Areas where there is a concentration of heritage buildings which should be protected, and where new development should be In keeping with the existing character of the area.

• Schedule B.3 Ladner Area Plan.

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• Objective B: Reinforce Ladner's village character by using the design features of buildings, streets, public spaces, and entrances in and around the historic village.

• Policy B.1: Use building design to reinforce the historic character of the village core.

• Policy B.6: o Use Heritage Conservation Areas to protect the residential

appearance of existing special neighbourhoods containing historic or character houses; and

o Use heritage conservation techniques, including regulations and incentives, to encour,:w~pre~ervation of sites identified as being of heritage significance whi<Share located outside existing and proposed HeritageConservatrbrrAreas.

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The Ladner Village (LV1) and LadnJ~::Yi:ll~ge Waterfront (~\!w}deVelopment permit areas and guidelines acknowledgetbe special character'of the Village core, noting its role in the origins of the communitY()f~adner. The guidelines encourage development whichr~inforces eh~rllehts of this historic industrial/commercial context through careful design, Tools to encourage preservation of heritage buildings and ()ther heritageCbaracteristics through the designation of9her.it~ge conservation area cue, howeVer; not available in development permit area guidelines .

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There ~reGurrentIYJ'N0 d~signated Heritage Conservation Areas identified in the Delt9pfficial.9.9mmuqityPlan.JhE3>first ar~a that was designated is on a portion of48.Avenue\vest of 48BStreet and the second is on Arthur Drive. The ,,',. . . . ,'. ",'

guidelines includep0l,iciestqencouragepreservation of those features which defineihe heritage ch~rpcter(jt~ach area, including architecture, landscaping, lot frontages9pd building~etbacks.

2.0 Project Req~i~ell1ents

In keeping with the requirements of Section 614 of the Local Government Act, the following are required to be completed:

a. Conduct research on historical context; review the heritage properties identified in the project area; consider culturally significant locations, landmarks and landscapes; and evaluate potential areas for designation as new Heritage Conservation Areas.

b. Identify and record notable features or characteristics, including landscape, streetscape, buildings, open spaces and landmarks that contribute to the heritage value or heritage character of each area.

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c. Define the geographic boundaries of proposed new Heritage Conservation Areas.

d. State the objectives to be met through designation of each heritage conservation area.

e. Specify guidelines describing how the objectives are to be achieved, including guidelines for infill and new development that would reinforce and ensure consistency with the area's historic character. Proposed guidelines should facilitate historic preservation while allowing for some change and development consistent with the special character of each Heritage Conservation Area;

f. Specify the conditions under which the HeritageQ()nservation Area guidelines would not apply to property within the area,.vvhiqh;rnay be different for different properties or classes of properties; and ,.",!

g. Include a schedule listing buildings, strLlctu~es, land9[features within the area that are' to be protected heritage pr()p~rty under the Loealgovernment Act;

h. Recommend incentives to encourag(preservation of hedtag~buildings.

3.0 Background Information

The following background information isto be considered in the preparation of the Ladner Heritage Conservation Area(s) and guidelines: ' •.

• Delta Heritage Strategy 2017. • Council rep()rtdate'd'McW19, 2017j!whichinclLides bylaws and policies

associated wjthJhe Herit~ge Action Plan . • Delta Official C()l11rrunityPla~ Bylaw No. 3950, 1985.

• CensH~.?at~.relafing.tq.RoPuIClti?~Characteristics, dwellings, etc. • T,erms ofRef~r~pce for:pelta Herita9S.Advisory Commission. • L(:ldner Area PlanadoptedJ998; consolidated January 2001. Of note are two

~reasrecommend~~~s Heritage Conservation Areas but which were never designa.ted. They are:

o 47AAvenue betWeen Delta Street and 51 Street. A number of houses and b~ildings c6hstructed prior to 1915 remain on the south side of 47 A Avenue ... Jhree of the structures were constructed as single family residentiaillhits and are presently used for residential or non-retail commercial uses. The other structure is a former Richmond school annex that was moved on site in 1992 and is used as offices; and

o Georgia Street between Chisholm Street and 48 Avenue. The area on the west side of Georgia Street has a unique character due to the remaining single family residential houses of heritage vintage. Georgia Street contains a number of houses constructed in the late 1800's. These houses along with some other more recent houses are all adjacent in one grouping giving the street its unique character.

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• Delta's Rural Heritage; Delta's Urban Heritage;

• Delta's Heritage files; and • Property information for sites identified in the Heritage Inventories.

4.0 Project Components:

• Discussion Document and/or Graphic Materials for Public Discussion


This would be produced in the initial stages of the work in order to identify possible Heritage Conservation Areas and describejhe implications of inclusion in a Heritage Conservation Area. It would be based on research of pertinent historical information, review of background andpqlicy documents, site visits, and the first round of consultations.

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• Initial Draft Heritage ConservationJ~W~a Designation and Glj.idelines . Draft Heritage Conservation Area(s),ahd.Guidelinxs starting\i\litb.rationale for delineation of Heritage Co~servation AreapouJlg~ries, including:aigescription of architectural, historical and cultural factorswh:ich:shaped the development of the area.

A statement of th~objectives,<incenti\jesJor.heritag~preservation, and design guidelines to preseryeheritage c~aracter is to be included. The draft will address research findihgs and 60qsultation with various·stakeholders, and achieve the project goals not~d in Seption 2.0 above.

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• Fin~I .. praftH~rit~ri~·q()I1~·~f\J~tiOrlArea( s)a nd Guidelines AJihal docum.~l1twould;p~ produb~gin.order to address comments provided at

. all?tages of con§l.JltatiC>rl.·:Jt would form the basis for designation of new or ex:p~l'1ded Heritag~g()nservati()n Areas and guidelines, which would then be includeg .• in a bylaw f()rc~onsideration by Council.

5.0 Project Activities: ',; ,>' . ."

The following acti~iti~~.~r~ anticipated in the course of the project:

• Periodic meetings and regular discussion among and/or with staff;

• Site visits; identification of potential new Heritage Conservation Areas based on research above and examination of (including but not limited to):

• Architectural styles, material, construction;

• Building and street character;

• Alignment and groupings of buildings;

• Significant views;

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• Open space and parks; • Other landscape elements of importance.

• Consultation with:

• Delta Heritage Advisory Commission; • Owners of heritage properties within the project area; • Residents in proposed Heritage Conservation Area(s)

• Local residents and businesses; and

• Developers


• Any other stakeholders identified by in the course of the project. • At least one information meeting with the general public;

• Additional meetings as required.

Following the steps described above, Delta Staffwould th~~: ~:;> ~;-::.>:

• Refer a bylaw to adopt Heritag$Conservation Area'p:lan(s) and Guidelines to Council for first and§,econd readings;

• Provide notification of a Public Hearing;.

• Refer to Council forthird reading; • Refer to Council for final consideration and radoption; and • Notify the Provincial Minister responsible forqeritage.

Action.Plan\lVIiscelianeous\Scope of Work for Heritage Conservation

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Documents

F - CivicWeb Ladner Heritage... · Heritage Conservation Area Designation P15-07 Implications: Page 4 of 4 October 20, 2017 Financial Implications - While some work will be done in