Report to: Development Services Committee Report Date:
SUBJECT:
Height Programme, Land Use Schedules and Target Density Up-date
PREPARED BY: Richard Kendall, Manger of Development, Central District
Extension 6588
RECOMMENDATION:
That Council affirm the original vision for Markham Centre as a human-scale, pedestrian-oriented, transit-supportive, major activity centre for the Town, in particular the height policies contained within the Markham Centre Secondary Plan (OPA 21), which call for a mid-rise community, with taller building elements concentrated around strategic “landmark” locations identified in the Plan;
That staff be directed to review the Markham Centre Secondary Plan’s height policies, including specific design criteria relating to taller buildings at “landmark” locations;
That staff be directed to up-date
the Markham Centre Secondary Plan’s Appendix ‘I’ – Central Area Statistics to
reflect Precinct Plans and development applications approved by Council;
That staff be directed to up-date the land use and other schedules within the Markham Centre Secondary Plan, to reflect Precinct Plans and development approvals, identified school and park locations, and established road alignments;
That a public meeting be held, following completion of a draft Secondary Plan Amendment, to consider the Amendment;
That the draft Secondary Plan Amendment
be reviewed by the Markham Centre Advisory Group;
And that Staff be authorized and directed to do all things necessary to give effect to this resolution.
EXECUTIVE SUMMARY:
This report validates the original vision for Markham Centre
as set out in the Markham Centre Secondary Plan (OPA 21), establishing a policy
framework for the creation of an urban, mixed-use ‘Town Centre’ for
This report discusses
the need for various technical amendments to the Markham Centre Secondary Plan
to reflect Precinct Plans and development applications approved by Council,
respond to issues associated with taller buildings in Markham Centre and to
develop appropriate design criteria relating to taller buildings, particularly
in the context of key “landmark” locations which have been identified in the
Secondary Plan. These criteria could
include a review of Section 37 policies within the Planning Act, which would allow Council to authorize
increases to the height and density of development in exchange for the
provision of facilities, services or other considerations such as enhanced
environmental benefits or public art, as set out in a By-law.
The original Markham Centre vision
remains valid and appropriate and the Town can deliver the higher densities
contemplated by the Secondary Plan with a building programme which retains the
original European model and pedestrian scale buildings. However, the original assumptions and targets
were developed over a decade ago and up-dates are required.
PURPOSE:
The purpose of this report is to reinforce the validity of original vision for Markham Centre and its pedestrian scale, mixed-use development in the context of recent development pressures and policy initiatives.
The report also identifies possible refinements to the Markham Centre Secondary Plan’s (OPA 21) height policies and density projections in the context of approvals granted by Council; and, suggests establishing detailed design criteria for taller buildings, including an examination of the “landmark” location policies. There is also a need for a technical amendment to up-date the land use schedules within the Secondary Plan is identified to reflect Precinct Plans and development approvals, identified school and park locations, and established road alignments.
BACKGROUND:
The Markham Centre Secondary Plan
(OPA 21) was adopted by Council in August, 1994 and approved by the Ontario
Municipal Board in July, 1997. It establishes
a policy framework for the creation of an urban, mixed-use ‘Town Centre’ for
OPTIONS/ DISCUSSION:
Since the adoption of the Secondary Plan over a decade ago, a number of comprehensive Precinct Plans and development applications have been advanced to implement the Markham Centre vision. Through the review of these applications and discussions with the Markham Centre Advisory Group, a number of issues have been identified relating to proposed building heights, development projections and targets, and the location of infrastructure throughout the Plan area. The original background work for the Secondary Plan was commenced in the early 1990’s and it is now appropriate to review this material in light of current building trends, development approvals, and recent Provincial and Regional policy initiatives.
At the time the secondary plan was developed the Markham Centre vision was based on a European model, with a strong built form relationship to the street edge and pedestrian scale buildings. Building heights lower than the typical North American “downtowns” were deliberately selected to differentiate Markham Centre from other emerging suburban centres of the day.
Height Policies are set out in the Secondary Plan
The Markham Centre Secondary Plan
contains a series of provisions relating to height and the quality of
buildings, with the final determination of building heights to be addressed
through the Precinct Plan process, which would then form the basis for detailed
implementing zoning by-laws. Within Low
to Medium Density Residential designations, the Plan contemplates that heights
are generally not to exceed 3 and a half storeys. Mid-rise buildings within the Community
Amenity Area - General designation shall generally not exceed 6 storeys. Within the
Higher buildings may be permitted
at key strategic “landmark” locations generally up to 13 storeys, subject to
Council being satisfied as to the quality of the design, and provided there is
a proper gradation of height. Policies
are also in place which allow for high-rise residential buildings to have an
equivalent height to the 13 storey office building module, which has resulted
in the 16 storey residential buildings which have been approved in the Highway
7 and
Key strategic or “landmark” locations for taller buildings within Markham Centre are set out in Schedule DD – Community Structure Plan in OPA 21 (Attachment 1). In the processing of development applications within these locations, staff have interpreted these height polices to provide a gradation of height from the “landmark” locations and to facilitate achieving the Town’s built-form and density objectives for Markham Centre.
The Secondary Plan also provides Council with the flexibility to allow for a building or buildings to exceed the general maximums as set out in the Plan, without amendment, provided the purpose and intent of the Secondary Plan are otherwise met.
A key consideration in achieving this height programme is Council being satisfied with the quality of design. Acceptability of architectural styles and building details can be subjective at times, consequently it is very important to articulate appropriate built-form parameters to establish the right streetscape relationship, ensure the desired quality of design and accommodate the densities anticipated within Markham Centre.
Precinct Plans Establish Detailed Parameters for Land Use and Built
Form
A key component of the processing
of development applications within Markham Centre is the Precinct Plan
evaluation process to ensure that a proposal addresses the objectives of the
Secondary Plan. A Precinct Plan covers a smaller geographic area within a
The Secondary Plan contemplates
that heights will be established through the detailed Precinct Plan and zoning process
and determined in response to adjacent development outside the Plan area, and
by providing a gradual transition of building heights within the Plan
area. As noted, the policies of the
Secondary Plan also provide that a building or buildings may exceed the general
maximum heights contemplated, without amendment to the Plan, provided Council
is satisfied that the purpose and intent of the Secondary Plan are met. The Secondary Plan requires that Precinct Plans, a non-statutory
guideline document, be endorsed by Council, prior to approval of any development
application within the Precinct.
To-date, Council has approved a
number of Precinct Plans including plans for the Warden West, Civic Centre and
the Centre West (Remington’s Downtown Markham) Precincts. In addition, staff working with consultants,
have prepared draft Precinct Plans for the
associated with Council’s
evaluation of the proposed Canadian Sports Institute of Ontario have been
resolved. The Sciberras Road Precinct
plan requires up-dates to incorporate recent changes to
Current Trends have been to Taller Buildings
Current trends, as evidenced by
development inquiries, preliminary proposals and Council approvals, reflect a
tendency to taller buildings within Markham Centre. Council recently approved a 16-storey slab
building along
While the issue of height is key to the Secondary Plan, also of importance is the streetscape and built-form relationship to the public realm. Approvals to-date have included a very strong, urban, built-form next to the street edge, generally with a well-defined building base. In certain instances buildings have been stepped back from the main wall at upper levels (i.e. at 8 storeys and above) to ensure a comfortable pedestrian environment at street level is maintained. This arrangement works particularly well for slab buildings up to a height of 8 storeys, and should be formalized in specific design criteria.
When slab buildings exceed 8 storeys the human scale and pedestrian comfort at grade can be lost, available sunlight is diminished, wind can become a greater challenge and the building height to street width relationship suffers. From an architectural, urban design and streetscape perspective, slab buildings should be in a mid-rise form and not exceed an 8 storey benchmark. A recent study by the Town’s Policy group has examined densities in relationship to built-form for various projects across the Town and GTA. This study, which reviewed a variety of projects comparing height, floor area and densities (floor space index – F.S.I.) demonstrates that densities of 2.5 F.S.I. or greater can easily be achieved with street-related buildings 7 to 10 storeys in height.
Providing appropriate design criteria for buildings in “landmark” locations where heights may exceed 8 storeys is essential to ensuring appropriate massing, streetscape relationship and architectural design, while addressing potential impacts relating to sun/shadow and wind.
Secondary Plan establishes Targets for Individual Precincts
Appendix ‘I’ – Central Area Statistics, is a non-statutory component of the Secondary Plan which identifies unit, population, school, retail and employment targets on a Precinct basis. Cumulatively, these targets project a unit count of 10,000; a population of 25,000 persons; identify the need for three elementary school sites, along with two secondary school sites; project a retail floor area of approximately 55,000 square metres; 390,000 square metres of employment floor area; and 17,000 employees.
As noted, these target numbers were identified at the time of approval of the Secondary Plan (1997) over a decade ago and need to be reviewed in the context of recent Precinct Plan and development approvals. As well, the targets may need adjustment in relation to more recent Provincial and Regional policy initiatives, and in the context of available rapid transit. Council has been kept apprised of the status of the Target Density projections for the individual precincts within Markham Centre through the consideration of precinct plans and detailed development proposals. The trend through the reporting out on development proposals has been for an increase in not only residential densities, but also employment densities, contributing to a healthy mix of uses for Markham Centre. It is time however, to review the targets on a Secondary Plan area basis.
Original
The original vision for Markham
Centre and its pedestrian scale development remain valid and are still
appropriate, even in the context of recent development pressures and policy
initiatives. This vision, which is
distinct from that of other emerging suburban centres which seek to intensify
around existing retail nodes, provides for the creation of a mixed-use,
human-scale, transit-supportive community intended to create a unique
destination for all of
The Town’s ability to deliver the higher densities contemplated by the Secondary Plan can be achieved within a building programme which retains the original European model, with a strong built form relationship to the street edge and pedestrian scale buildings, primarily in the 6 to 10 storey height range.
Design Criteria Required for Buildings in
Given recent development initiatives and concerns with respect to the architectural style and built form associated with certain projects in Markham Centre, it is appropriate to review the Secondary Plan’s policies around height with a view to affirming the original vision, strengthening policies relating to the base of buildings and establish detailed design criteria for taller buildings. In addition, this review should examine the current “landmark” location policies in the Secondary Plan to refine the locations, clarify the intent of these polices and better articulate actual heights contemplated.
As part of this review, the Secondary Plan’s submission requirements should formally be expanded to include requirements relating to detailed sun and shadow studies to assess impacts on adjacent properties and open spaces. A requirement for a wind analysis should also be identified to better understand wind tunnel effects resulting from the built form patterns and taller buildings.
The review should also discuss the
appropriateness of establishing criteria whereby projects could be considered
for additional height, where warranted.
This could include a review of Section 37 policies within the
Land Use Schedules Require Up-dating
As a consequence of the detailed
review and approval of several separate Precinct Plans within Markham Centre,
certain land uses, road patterns, school sites and park locations have been
modified, from what was originally identified in the land use and associated
schedules at the time of adoption of the Secondary Plan. For instance, the final alignment of
The location of school sites
within the Remington plan have been finalized in concert with the draft plan
approval process, and the Bill Crothers High School in the East Precinct is now
under construction. The various
schedules in the Secondary Plan should be up-dated to reflect these fixed
elements within Markham Centre, including the future 10 acre central park
within the Remington plan. In addition,
the Open Space System Schedule (CC) in the Secondary Plan identifies a
An Amendment to the
Refinements to the Secondary Plan’s height policies and Land Use schedules resulting from this review will require an Official Plan Amendment and will be subject to a formal public meeting. This amendment should also include an up-date to the Secondary Plan’s Appendix ‘I’ – Central Area Statistics. As noted, Staff have provided summaries of changes to these Statistics as part of the analysis of Precinct Plans and development applications, however a comprehensive up-date should now be completed in concert with the proposed changes to the Development Charge By-laws.
The
The Markham Centre Advisory Group has been instrumental in the review of development applications and Precinct Plans in Markham Centre, providing key commentary on Markham Centre and larger community issues. Comments from the Advisory, in part, have lead staff to the conclusion that now is the time to up-date certain policies within the Secondary Plan. Staff intend to continue the dialogue with the Advisory Group in developing design criteria for taller buildings, reviewing the “landmark” location criteria, and in up-dating development targets.
ENVIRONMENTAL CONSIDERATIONS:
Not applicable
ACCESSIBILITY CONSIDERATIONS:
Not applicable
ENGAGE 21ST CONSIDERATIONS:
Not applicable
BUSINESS UNITS CONSULTED AND AFFECTED:
Not applicable
RECOMMENDED BY:
_______________________________ ________________________________
Valerie Shuttleworth, M.C.I.P., R.P.P. Jim Baird, M.C.I.P., R.P.P.
Director of Planning & Urban Design Commissioner of Development Services
ATTACHMENTS:
1. Schedule DD – Community Structure Plan
Planning\Teams\Markham
Centre\Coordinator\Height and Density\Height and Density Report - September 18,
2007.doc