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Originally Posted by Reports of Committees and City Manager:
a) Report No. 7-2008 of the Municipal Planning Commission;
A5) Enquiry - Councillor C. Clark (December 17,2007)
Architectural and Land Use Guidelines - Spadina Crescent
File No.: CK. 4110-1, PL. 4110-1
RECOMMENDATION: that the following report be received as information.
BACKGROUND
The following inquiry was made by Councillor Clark at the meeting of City
Council held on December 17,2007:
"Could the Administration please report on the process required for establishing architectural guidelines andlor land use guidelines for Spadina Crescent between the Broadway Bridge and University Bridge, such that the skyline of Spadina retains its character and beauty while also achieving goals of density as outlined in the Downtown Housing Plan."
REPORT
1. Introduction
One of the principal objectives of Saskatoon's Development Plan is, "To ensure that the
Downtown remains as the centre and heart of the financial, administrative, cultural, and
commercial activities of the City and region." The Downtown is also intended to attract a
significant share of the City's overall housing development. The zoning controls in the
Downtown help to facilitate these objectives by providing for a wide variety of potential
uses in a medium and high-density format, with few limits on building design options. This
creates a flexible and attractive regulatory environment for prospective developers and helps
to achieve the higher densities envisaged for the Downtown. Financial incentives are also
available for downtown housing development.
At the same time, there may be areas within the Downtown where a higher level of design
control is desirable, as a means to enhance or preserve the character of a given area. River
Landing is an example of an area in the Downtown where City Council has applied a design
review process in accordance with a specific set of architectural guidelines.
2. Option of Design Review for the Spadina Crescent Area
The Planning and Development Act, 2007, and the City's Development Plan facilitate the application of architectural controls in a specific area. And while a design review process takes extra time and resources to administer, the basic principle is that the public interest may be served by enhanced design review objectives being applied to developments in
certain areas of the City.
In order to implement a design review process in a given area, such as along Spadina Crescent in the Downtown, the following process would be undertaken:
a) A Terms of Reference and/or Request for Proposals for a design study would be
prepared by the City Administration, including items such as:
- the overall study area;
- sub-areas or character zones within the overall study area;
- design themes or general design objectives for the overall study area and
sub-areas (e.g. what is being preserved, or what is being encouraged?);
- borrowing from the "River Landing, Local Area Design Plan," more specific
design policies and/or guidelines would also be addressed, including issues
such as:
- building height, proportion, scale, and massing;
- walls, roofs, windows, and glazing;
- style, colour, and variety;
- relationship to streetscape;
- signs, parking, loading, vehicular access, and senice areas; and
- landscaping, lighting, accessibility, and pedestrian spaces.
b) A Design Consultant could then be retained to complete the noted study. While the
exact nature and cost of the study is hard to predict, an order of magnitude estimate
may be in the area of $30,000 to $50,000 and one year to complete, given that
extensive consultation would be required with property owners, local residents, and
the community at large.
3. The Larger Picture
In addition to the question of design review along Spadina Crescent, there are a variety of
other issues related to downtown development that may warrant examination. Examples
include building heights, retail at grade level, temporary parking lots, and the larger issue of
design review for all major buildings in the Downtown.
a) Building Height Limits
The current building height limit for much of the downtown area is 76 metres, or
about 25 storeys. A number of prospective developments have been brought
forward over the last few years for buildings that would surpass this limit. Given
that the height limit has been in place for several decades, and that expectations for
development in the City have increased significantly over that time, it is
recommended that a more flexible height limit be applied in the Downtown. This
could be accommodated by replacing the current fixed-height limit with a more
flexible arrangement such as a modified "floor area ratio" where height is related to
the scale of the building and the size of the site.
b) Retail at Grade Level
Current development policies call for retail andlor service-oriented uses to be located
at grade level in the main retail core area of the Downtown. This is intended to
provide a vibrant pedestrian environment and to cluster retail and service-oriented
activities in one concentrated area. The enforcement of this policy has proven
challenging at times, and it is recommended that both the size of the retail core area
be reduced and that the policy become "form-based" rather that "use-based". In
other words, the objective would be to encourage the construction of buildings,
streetscapes, and other physical elements that support pedestrian activity, rather than
just permitting a limited number of land uses.
c) Temporary Parking Lots
Vacant properties in the Downtown often become commercial parking lots as a
temporary source of cash flow, pending future development decisions. This practice
becomes challenging when the parking lots remain in place too long and/or when
they are located on key sites within the main retail core area of the Downtown. It is
recommended that a time limit be placed on commercial parking lots in the main
retail core area of the Downtown, perhaps up to two years.
d) Design Review for All Major Buildings in the Downtown
Many of the larger Canadian cities have some form of design review process for all
new buildings in their downtowns. At some point, Saskatoon's entire Downtown
may also benefit from such a process. In order to be successful, the regulations must
be very clear and the process very time efficient. A first step may be limited to
encouraging a sympathetic interface between new buildings and the public
environment, particularly where public streetscape and other major infrastructure
investments have been completed.
4. Conclusion
The implementation of a design review processes for the Spadina Crescent area in the
Downtown is possible, given the time and resources to complete the necessary studies.
However, limiting the process to this one area in the Downtown is not recommended at this
time. A more comprehensive look at design review for the Downtown is contemplated as
part of the overall Development Plan/Zoning Bylaw review.
In the meantime, the Administration is considering a short-term package of Zoning Bylaw
amendments aimed at some of the more pressing Downtown development issues, including
building heights, temporary parking lots, and retail at grade policies. These issues have
consistently been brought to our attention as needing review. It is hoped that this package
could be brought forward in early 2009, subject to stakeholder consultation.
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