Report to: Development Services Committee Date of Meeting: June 6, 2006

SUBJECT: Langstaff Land Use Study Phase I – Land Use Options,

File SD 03 - 116189

PREPARED BY: Dave Miller, Senior Project Coordinator, Extension 4960

RECOMMENDATION:

That Development Services Committee receive and release for public review and comment, the Langstaff Land Use Study Phase I – Land Use Options report, dated May15, 2006, prepared by The Butler Group Consultants Inc.;

That public consultation regarding the possible land use options as outlined in the Phase 1 report be held in the fall of 2006;

That staff coordinate with the Thornhill Subcommittee regarding dates for public consultation; and

That staff report back to Development Services Committee with an overview of the comments and input received from the public and recommendations regarding next steps.

EXECUTIVE SUMMARY:

Not applicable

FINANCIAL CONSIDERATIONS:

Not applicable

Current Situation and Context

The Langstaff area currently consists of small-scale industrial, open storage and residential uses. The area is bounded to the north by Highway 407, to the south by the Holy Cross Cemetery, to the east by Bayview Avenue and to the west by Yonge Street. The area is isolated from the remainder of Thornhill, is characterized by fragmented ownership and lower quality uses, and has long been identified as an area in need of investment and redevelopment.

The Langstaff study area has a total area of approximately 46.8 hectares (115.6 acres). The western portion, between Young Street and the railway tracks is approximately 17.2 hectares (42.5 acres) and the eastern portion, between the railway tracks and Bayview Avenue is approximately 29.6 hectares (73.1 acres). The eastern portion of Langstaff includes a strip of land between Langstaff Road East and Highway 407, with an area of approximately 1.9 hectares (4.7 acres), and an Environmentally Significant Public Open Space area (a wood lot),with an area of approximately 1.8 hectares (4.4 acres).

Planning History

A framework for a mixed commercial and residential community was established in the Thornhill Secondary Plan, as amended. The Thornhill Secondary Plan was approved in June of 1997, with modifications. However, land assembly and re-development anticipated by that Plan has not occurred.

The original version of the Thornhill Secondary Plan, as adopted in 1991, contemplated redevelopment of the existing industrial and residential areas in the Langstaff area upon the completion of more detailed studies and a Tertiary Plan addressing land use and market analysis, urban design guidelines, environmental protection and mitigation, and infrastructure requirements respecting transportation, water, sewers and storm water management. In March 1992, Council authorized the undertaking of the Langstaff Development Feasibility and Urban Design Study.

The Langstaff Development Feasibility and Urban Design Study completed in February 1995 included, amongst other things, an assessment of opportunities and constraints for the Langstaff Area lands, a community review of three development options, and a recommended land use plan along with guidelines for infrastructure improvements and an implementation strategy. The Tertiary Plan recommended by the Study was approved in June 1997, as an amendment to the Thornhill Secondary Plan. The Secondary Plan designates the Langstaff area for Retail Warehouse use between Yonge Street and the CN railway line and for Urban Residential (Medium Density) from the CN railway line to Bayview Avenue.

The area context has evolved over the last six years

Since the introduction of the Langstaff Redevelopment Area policies into the Thornhill Secondary Plan, a number of changes in land use and infrastructure have occurred or are currently under review which may directly influence the feasibility of redevelopment potential for the Langstaff area within the current Secondary Plan framework.

These changes include:

· the construction of Highway 407 and the resulting access arrangements and grade conditions;

· the partial realignment of Langstaff Road East with signalized access to Yonge and Bayview;

· a proposal by MTO for a Hwy 407 Transitway with stations within the vicinity of the Langstaff area;

· a proposal to relocate the GO Station north to a new Richmond Hill Intermodal Station and a new underpass access from Langstaff Road East to the new GO station;

· proposals by the York Rapid Transit Plan Consortium for a Yonge Street Transitway and a Hwy 7 Transitway, including a potential maintenance facility west of the CNR line in the Langstaff Area;

· redevelopment of the Jail Farm lands in Richmond Hill as a retail warehouse centre; and

· the further development of the adjoining Cemetery lands by the Catholic Archdiocese (rather than for residential use as permitted by the Secondary Plan).

In addition, a number of changes to planning policy and legislation have occurred or are under review which may also directly influence the feasibility of redevelopment potential for the Langstaff area. The changes include:

· approval of the Town’s Strategic Plan and Corporate Goals;

· the Langstaff Sewer and Watermain Design Study now underway (by the Town);

· adoption of the Markham Transportation Planning Study;

· an endorsement of rapid transit corridor planning principles for the Hwy 7 corridor and authorization to complete a study of public transit and transit supportive development opportunities along Highway 7 by the Town;

· a proposal by York Region for policy changes to implement a Centres and Corridors Strategy - identifying a new Richmond Hill/Langstaff Regional Centre and identifying Highway 7 as a Regional Corridor;

· new Provincial legislation respecting Brownfields redevelopment;

· revision to the Town’s Community Improvement policies; and

· a review of lands under Provincial ownership by the Ontario Realty Corporation.

Anticipated re-development has not occurred

Given the policy context, recent development applications, the evolution of the surrounding area and fractured land ownership the land assembly and redevelopment anticipated in the Thornhill Secondary Plan has not occurred. Consequently, the Butler Group Consultants Inc. was retained to review the opportunities and constraints facing re-development of the Langstaff area.

The full study is being conducted in two phases. The Phase I study (attached to this report) includes an analysis of the opportunities and constraints for redevelopment and a review of previous development options including land use and servicing configurations to determine if the changes to the area context (outlined above) or changes in market trends have influenced the feasibility of redevelopment potential for the Langstaff area. The Phase II study consultants will recommend specific policies to be incorporated into the Thornhill Secondary Plan, provide an Urban Design Plan and a Development Guidelines Report, and prepare any required implementation documents such as Zoning and Property Standard By-laws.

The Phase I study has evolved since the 3^rd quarter 2005, when staff became aware that the YRTP was contemplating acquiring lands between Young Street and the CN railway line. YRTP is proposing to use these lands for a transit maintenance yard. A large maintenance yard will influence land development opportunities through-out the rest of the Langstaff area, including lands east to Bayview Avenue. The land use options, advantages and disadvantages, in the Butler report, have been evaluated on the basis that the Regional transit initiative for a bus maintenance yard will proceed on, at least a portion of, the lands west of the railway. The site required by the Region is approximately 11 hectares (27.18 acres). However, the Region may expand it acquisition programme to include all the lands between Young Street and the CN railway. Regional Council has approved an acquisition programme. The Yonge Street Corridor Public Transit Improvements Environmental Assessment dated July 2005 was approved by the Minister of Environment in May 2006. With the approval of the Environmental Assessment, a significant portion of the study area can be assembled and consolidated by the Region. They do not have a scheduled construction start date. If the Region does assemble lands for a maintenance facility, the Thornhill Secondary Plan should be amended for this part of Langstaff. A recent application for an Official Plan Amendment by existing landowners has not been incorporated into the land use study. If the Region does not proceed with the maintenance yard, the Phase I study will have to be updated to reflect alternative land use proposals and options.

The Butler report outlines four options Status Quo, Residential/Commercial Uses, Upgraded Employment Area and High Density Residential

Section 7 of the Butler report (see attached) outlines the advantages and disadvantages of four possible development options, based on the assumption that the Regional transit initiative for a bus maintenance yard will proceed at least on a portion of the lands west of the railway. Additional study of revised options, including possible air rights development over future regional facilities may be appropriate once the Environmental Assessment process has been concluded.

The ‘Status Quo’ option is essentially the existing zoning and land use pattern, which includes a mix of dry industrial, open storage and automotive uses on limited municipal services in addition to the new maintenance facility. The zoning by-law would not need to be changed, however the Official Plan would reinstate the original Industrial designation for the area.

The ‘Residential/Commercial Uses’ option is essentially the current Secondary Plan modified to reflect the proposed Regional maintenance facility. A mixed medium/high density “neo-traditional” residential community on the lands east of the railway progressing out to Bayview Avenue. The secondary plan would need to be changed to reflect the proposed Regional Maintenance Facility west of the railway and to essentially eliminate retail warehousing opportunities in this area.

The ‘Upgraded Employment Area’ option looks at upgrading the entire area, between the CN railways line and Bayview Avenue, to a more contemporary employment area of a general industrial nature for manufacturing, processing, wholesaling and warehousing within wholly enclosed buildings with no or limited outdoor storage, offices, and service commercial uses (such as banks, restaurants, hotels etc) that would support the employment uses. This would require a revamping and review of the outmoded and undesirable uses that exist in the current zoning regime and a re-designation of the lands in the Official Plan to an employment/industrial designation with higher development standards.

Some interest has been expressed by landowners, for a high density residential option. The ‘High Density Residential’ option evaluates the advantages and disadvantages of amending the Secondary Plan to allow high density residential development.

The most probable scenario would appear to be for either an upgraded employment area designation or a mixed use development, including higher density residential. However, further study and public input is required.

Next Steps

Now that the Environmental Assessment for the transit maintenance yard has been approved by the Minister of Environment, staff recommend that a public consultation process begin in the fall of 2006 to obtain public input regarding the possible land use options, as outlined in the Phase 1 report. Staff will coordinate with the Thornhill Subcommittee regarding dates for public consultation and will report back to Development Services Committee with an overview of the comments and input received from the public and recommendations regarding implementation.