Report to: Development Services Committee                           Date
of Meeting: Sept. 19, 2006

SUBJECT:                          Regional
Streetscape Policies

PREPARED BY:               Alan
Brown, Director of Engineering                     ex
7507

David
Clark, Town Architect                                ex
8340

RECOMMENDATION:

That the staff report entitled,
“Regional Streetscape Policies” dated September 19, 2006 be received;

And that Markham support, in principle the
Region’s Standards for Six-lane Roads and Municipal Streetscape
Partnership policies subject to the following amendments;

amend
Regional Road classifications to reflect the adjacent uses, built form and
development context through which each Regional road passes as described
in this report;

adopt
financial, environmental and culturally sustainable boulevard and median
landscape design standards for each road classification;

amend
its draft Municipal Streetscape Partnership policies with the objective of
reducing overall capital and operating cost impacts to the Region and Town
through environmental and culturally sustainable design and construction ,
to provide for streetscape retrofits on existing roads  and a greater Regional financial
share of streetscape improvements;

better
align Regional streetscape standards for each road classification to meet  local municipal urban design
objectives;

develop
streetscape standards for four lane Regional roads in keeping with the
Region’s Standards for Six –lane Roads;

And that Town staff be authorized
to meet with Regional officials to discuss Town comments and recommendations,
finalize Regional Road
classifications, streetscape details, cost estimates, cost sharing formulas and
funding sources and report back for Council consideration.

EXECUTIVE SUMMARY:

The Region of York will consider a report in early October regarding
streetscape policies entitled “Regional Standards for Six-lane
Roads” and “Streetscape Partnership Policies”.  The Region’s policy framework also
includes existing policies adopted in the 1998 Regional Streetscape Study and
further refined in the Regional Streetscape Policy 2001. The proposed new
policies, once adopted will establish the framework through which streetscapes
will be designed, financed and implemented on Regional Roads in partnership
with the area municipalities.

The Regional Standards for Six-lane Roads policy framework,
if endorsed, proposes that all Regional Roads going forward be constructed with
centre medians, where feasible. Landscape details are not determined. However,
overall the Regional policy framework does not establish consistent
streetscaping across the entire spectrum of Regional Roads at a base standard
in keeping with the Town’s urban design objectives. As well, enhancing  Regional streetscapes to meet Town
objectives has a financial impact for capital construction and ongoing
maintenance implications for the Town, that are not sustainable.

Three Alternative
Courses of Action were Examined

This report outlines three alternative courses of action for
the Committee’s consideration and assesses the urban design and financial
impacts to the Town of each course of action. The assessment determines that
working within the Region’s existing and proposed standards and policy
framework and seeking amendments to that framework would likely not result in streetscape
consistency nor be financially or environmentally sustainable.  This report recommends alternative design
standards for consideration by the Region; one that would result in
financially, environmentally and culturally sustainable streetscapes on
Regional Roads, in a manner that will gain greater public acceptance.

FINANCIAL CONSIDERATIONS:

The existing and proposed Regional
Streetscape and Partnership policies contain streetscape and cost sharing options
which could result in the Town of Markham
being responsible for regional road streetscape costs from a 25% share up to
100%. The capital cost impact to the Town to implement streetscapes to the level
and according to the Regional road classification could range from $5 to $10
million in tax funding over the Region’s Ten Year Capital Road programme.
Should the Town seek a re-classification of the Regional Road programme and streetscaping
standards more in keeping with our urban design expectations, the capital
impacts could be higher on the same capital programme basis. Even with an
amendment to the Region’s partnership policies and the Region taking a
greater share of the costs, the cost impact to the Town would not be
sustainable. At the same time the Town’s operating costs could increase
significantly to maintain enhanced Regional streetscapes. From a financial
standpoint, a new direction should be identified that can significantly lower
the capital and operating cost impacts to the Town and provide streetscape
consistency across the Regional road classifications.

The above comments do not include
the potential capital and operating cost impacts to the Town for the
streetscape retrofit of already rebuilt  Regional Roads that don’t meet the
Town’s urban design objectives, such as Markham Road (Steeles to 14th)
and Kennedy and McCowan (16th to Major Mackenzie).

PURPOSE:

The purpose of this report is
bring forward for Council’s consideration, the urban design and financial
impacts to the Town as a result of the existing and draft Regional streetscape
policy framework. The report also discusses alternative courses of action and
recommends a preferred course of action for Council’s consideration.

OPTIONS/DISCUSSION:

Staff reviewed the existing and
proposed Regional Streetscape Policy framework and identified three courses of
action for Council’s consideration;

Work
within the existing and proposed Regional Streetscape Policy framework

Seek
amendments to the Regional Streetscape Policy framework

Request
the Region to adopt new sustainable streetscape policies

The three alternatives were
assessed from an urban design perspective and potential financial impact to the
Town.  Conclusions and
recommendations are identified for Council’s consideration.

Alternative 1.

Work with existing and proposed Regional Streetscape Policy Framework

From an urban design standpoint
staff concluded that, using the base Regional streetscape standards and the
proposed road classification, the Town could not meet its overall streetscape
urban design objectives. The 2001 Regional classification identifies a
component of the Markham Centre plan for consideration of the highest standard
of Regional streetscaping and further identifies sections of  Highway 7 and Yonge Street for the second highest
standard. All other Regional roads are classified for the base level of
streetscaping.

The Region will Provide Medians where Feasible on New Six-lane Roads

Under the proposed Regional
six-lane policies, the Region will pay for the full capital and operating costs
of base streetscaping including the centre medians which is a specified
standard. More than half of the roads planned for implementation within the Region’s
Ten Year Capital Roads programme are proposed six lane cross section. While the
policy framework for six lane roads is commendable, the results often fall
short of expectations because of turning lane requirements and driveway
accommodation that through detailed design which diminish the amount of full
width median that can accommodate planting amenities.

Regional Road Design is Subject to Partnership Funding

The balance of  Regional four lane roads are to be
delivered without medians with the paved centre lane narrowed as the roads
taper away from the intersections. Enhanced streetscaping on Regional six lane
roads would require financial funding from the municipalities. The balance of Regional
roads that are four lanes or less are subject to the partnership policies. The list
of “upgrades” is limited and subject to a Regional review process,
funding and municipal partnership dollars. Streetscape “upgrades”
would  be negotiated with the Region
on an individual project basis as the Regional Ten Year Capital Road programme
is implemented. Regional partnership funding is limited and spread across the
entire Region. The Town would have to compete with other area municipalities
for streetscape dollars. There is no assurance that streetscape consistency,
project to project,  could be achieved
because of funding constraints.

Streetscape Details don’t meet Town Objectives

Pedestrian amenity and crossing
safety are inadequate especially where Regional Roads abut existing or new
residential communities. The landscape treatments suffer from vehicle impacts,
vandalism and the proximity to pollutants and salt spray, are labour intensive
to maintain and not sustainable over time.

The Financial Impact to the Town is not Sustainable

From a financial standpoint, under
the Region’s Streetscape Partnership Policy framework the capital cost
impact to the Town could be in the range of $20 million over the Region’s
Ten Year Capital Roads programme to meet the Town’s streetscape
objectives. Except for Markham Centre, the Town does not have Development
Charge by-law in place to support Regional streetscaping. As well, the Region
has not incorporated increased streetscape funding in the Regional Development
Charge by-law. The Town is currently responsible for maintaining the boulevards
on Regional roads. The cost for mowing is reimbursed by the Region.  However, sidewalk maintenance and the
maintenance of medians, on other than the proposed six lane cross sections including
any upgraded boulevard landscaping would be the responsibility of the Town
under the proposed policy regime.

Staff concluded that application
of the overall policy regime proposed, while having some benefits with respect
to streetscape improvements on Regional six lane roads, will not result in streetscape
consistency across the Regional road classifications, nor will it’s
results be financially sustainable to meet the Town’s objectives. Staff recommend
not pursuing this course of action.

Alternative 2.

Seek Amendments to the Regional Streetscape Policy Framework

From an urban design standpoint,
staff concluded that the Regional road classifications should be amended to
better reflect the general use, built form and development context through
which each Regional road passes. Staff also concluded that there should be a
road classification system that identified appropriate streetscaping on roads
that abut residential communities distinct from roads that abut primarily
commercial or industrial lands, heritage districts or by-pass roads. Further
work would need to be done with the Region to better align streetscape
standards so that greater consistency and predictability can be achieved in
implementing streetscape improvements in the Regional Ten Year Capital Road
programme together with retrofitting of streetscapes on expositing regional
roads.

The Financial Impact to the Town for Amended Standards is not
Sustainable

From a financial standpoint,
aligning streetscape standards based on the Region’s current and proposed
policies would result in increasing the capital cost to implement higher
standards across the Town. An amendment to the Region’s Partnership
Policy would need to be secured in order to have the Region take a greater
share of the costs and lessen the financial impact to the Town. In the end it
would be risky to assume that the Town would be successful in significantly reducing
capital cost impacts unless the Region were successful in obtaining additional
funding sources such as Development Charge support for the higher standard
streetscape improvements. Increasing support for streetscape improvements
through Development Charges might be successfully appealed by the development
industry.

Landscape Treatments would Still Suffer

Landscape treatments would still
be subject to the same impacts as outlined in Alternative 1. The design
standards are labour intensive to maintain, and are not sustainable over time.  Outside of the maintenance costs picked
up by the Region on the six-lane roads,  the Town may have to assume the full
financial operating and maintenance obligations for the higher standards of
streetscape improvements unless the Region were able to pick up a share of the
costs.  Alternative 2. was
considered to be a workable course of action but carried with it significant
risk as to whether the Town would be successful in securing a greater Regional
share of capital and operating costs. In the end it was concluded that the
overall capital and operating costs to the Region and the Town for Alternative
2. were unsustainable. Staff recommend not pursuing this alternative.

Alternative 3.

Adopt new Sustainable Streetscape Standards

From an urban design and financial
standpoint, the current and proposed Regional streetscape standards are costly
to implement and maintain. Within the Regional Policy framework for six-lane
roads, considerable capital has been identified for streetscape improvements
primarily for median treatments. Through detailed design, the extent of
landscaped median treatment would likely be significantly reduced. Staff
estimate that fully landscaped medians would represent a fraction of the
overall length of road, significantly impacting the streetscape amenity.

A new Design Approach is
Warranted

Urban design staff concluded that
a new design approach to streetscaping Regional roads was warranted. The
approach recommends that landscape design, materials and details be developed
from the standpoint of financial, environmental and cultural sustainability. As
in Alternative 2., staff also recommend that the Regional road classifications
be amended to better reflect their specific local contexts. From a streetscape
standpoint Regional Centre classification roads would be developed with more
hard urban streetscapes and Regional
Road classifications with less hard materials and
more natural, native landscaping. On the majority of Regional roads the
landscaping could consist of native species that are environmentally
sustainable and able to contribute to air, soil and water quality improvements,
bio-diversity and storm water management improvements. Boulevards and medians
acting as “bio-swales” to collect and process run-off could also
have a positive impact on the environment and operating costs. The design
standards would have to be carefully developed in order to achieve cultural
sustainability and  public
acceptance. Too “wild” and the public may consider the streetscapes
untended and unsafe; too manicured and the streetscapes will be more cost and
labour intensive.  With road
re-classification, streetscapes could be better fine tuned and more
appropriately developed to each context.

Regional Streetscape Funding may be Lost

From a financial standpoint there
is a risk that a component of the capital allowance for providing landscaped
medians on six-lane Regional roads could be lost on a project to project basis
through detailed design where medians are considered unfeasible because of
turning lane and driveway impacts.
The “unspent” component of capital allowance for
streetscaping should be captured and re-allocated to other streetscape
improvements on Regional roads within the Town. Landscape design and material
selection should be targeted to reducing the financial impact on both the
capital and operating costs.

Staff concluded that Regional
streetscape dollars for six-lane roads should be identified as a capital allowance
whereby “unspent” funds from individual projects could be
re-allocated. The Region should provide additional capital resources into
partnership funding and identify a capital funding source for Regional road
streetscape retrofitting. As well the Region should be requested to pursue
incorporating sustainable streetscape costs into the Regional Development
Charges by-law.

Staff concluded that Alternative 3
was the preferred course of action and recommends the alternative to Council.

Next steps:

Committee endorse the staff
recommendations as the basis of further discussions with the Region
regarding streetscape policies

Staff be authorized to meet
with Regional staff to review Town comments and recommendations

Staff to report back to Council
as to updated cost estimates, operating and maintenance costs, potential
cost sharing with the Region, impact on the Town and funding sources

Region and Markham staff to finalize streetscaping
for projects currently underway or under design (i.e. Woodbine By-pass,
9th Line, Hwy 7, Major
Mackenzie Drive, etc.)

Staff to report back on any
future requirements

BUSINESS UNITS CONSULTED AND AFFECTED:

The Operations and Asset
Management Division of the Community & Fire Services Commission was
consulted in the preparation of this report

RECOMMENDED BY:

__________________________
______________________________

Alan Brown, C.E.T             .
Jim
Baird, M.C.I.P, .R.P.P.

Director of Engineering
Commissioner, Development Services

___________________________

Valerie Shuttleworth, M.C.I.P., R.P.P

Director of Planning &
Urban Design

ATTACHMENTS:                Regional
Streetscape Policy Review Power Point

Presentation

Q:\Development\Planning\Teams\Markham
Centre\Streetscape\StreetscapeExecreport1.doc