Report to: Development Services Committee Date of Meeting: September 18, 2007

SUBJECT: Town Initiated Official Plan Amendment

Development Principles for the Langstaff Area, and

Initiation of a Master Plan and Secondary Plan Amendment Process for the Langstaff Area

File SD 03 - 116189

PREPARED BY: Dave Miller, Senior Project Coordinator, Special Projects

RECOMMENDATION:

That the report entitled “Town Initiated Official Plan Amendment, Development Principles for the Langstaff Area, and Initiation of a Master Plan and Secondary Plan Amendment Process for the Langstaff Area, File SD 03 – 116189” be received;

And that a Public Meeting be held to consider the Official Plan amendment (attached as Appendix ‘A’) to identify in the Markham Official Plan that the Langstaff Area is part of an Urban Growth Centre (Richmond Hill/Langstaff Gateway Urban Growth Centre) in the context of the Provincial Growth Plan;

And that Town staff be authorized to initiate a process, as outlined in this report, to prepare a Master Plan and a Secondary Plan amendment for the Langstaff area, in consultation with the Thornhill Sub-committee (comprised of Mayor Scarpitti ex officio, Deputy Mayor Jones, Regional Councillor Heath and Councillors Burke and Shapero) and area landowners;

And that a Request for Pre-Qualification to select a short list of qualified consultants to be invited to submit detailed proposals to undertake the preparation of a Master Plan for the Langstaff Area be developed, in accordance with the Town’s Purchasing By-law;

And that the Langstaff Land Owners provide financial security, to the satisfaction of the Town Treasurer, prior to the award of the contract to the successful consultant team;

And that a capital budget be established for the preparation of the Langstaff Area Master and Secondary Plan process, to be financed by the Langstaff Land Owners;

And that staff report back with the necessary credit agreement, to be executed with the Langstaff Land Owners, for the financing of the Master Plan and Secondary Plan Amendment preparation process, subject to the passage of a Development Charge By-law;

And that staff, in consultation with the Thornhill Sub-committee, report back to Development Services Committee on recommended consultant selection and the recommended Master Plan Study process and timelines, including the public consultation process;

And that staff update Development Services Committee on the status of the Master Plan and related studies on a regular basis;

And that Staff be authorized and directed to do all things necessary to give effect to this resolution.

EXECUTIVE SUMMARY:

Since the introduction of the current 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 will directly influence the redevelopment potential of the Langstaff area.

There have also been a number of changes to planning policy and legislation in the past few years that will also directly influence the redevelopment potential for the Langstaff area. For example, the Langstaff area is now part of the Richmond Hill/Langstaff Gateway Urban Growth Centre, as identified by the Province in the Growth Plan for the Greater Golden Horseshoe (2006), and has been identified as a Regional Centre in the Region of York’s Centres and Corridors policies (ROPA 43).

There has also been a significant increase in landowner and developer interest in redeveloping the Langstaff area. Applications for significant development proposals have been filed.

With the changes to the land uses in the surrounding area, the evolution of the policy context, and the advancement of landowner and developer interest, it is clear that the Town will need to provide clear direction regarding appropriate redevelopment of the area. This report outlines a process to guide the preparation of an Official Plan Amendment, a Langstaff Area Master Plan, implementing documents, and the creation of a phasing plan.

New development in the Langstaff area should be based on development principles and practices that will create an attractive, efficient and liveable self-contained community, characterized by mixed land use and transit oriented density. The Langstaff area should demonstrate conformity with the Urban Growth Centre Policies and principles, including a minimum density of 200 residents and jobs (combined) per hectare, compact built form, designed to promote pedestrian activity and social interaction. The neighbourhood(s) should have a focal point or centre, with a mix of residential, commercial and community uses and activities, including opportunities for education, recreation, shopping, working and worshiping. Special attention must also be paid to protecting and enhancing the public realm and creating quality public spaces, parks, streetscapes, and public buildings, which are connected by sidewalks and paths.

To begin the process of creating a sustainable community in Langstaff, staff recommend that the Official Plan be amended to designate the Langstaff Area as an Urban Growth Centre in the context of the Growth Plan for the Greater Golden Horseshoe, and that the development principles, outlined in this report, be endorsed by Council and incorporated into the Town’s Official Plan. These principles are framed to promote consideration of the Town’s economic, environmental and social goals for the area.

These development principles will be used to guide the production of a Master Plan vision for the Langstaff Area. It is recommended that the Town retain a leading Urban Design Architectural/Planning firm and sub-consultants to prepare the Master Plan and related technical studies, such as transportation, servicing and environmental, which will then be translated into a new Secondary Plan for the area. The Thornhill Sub-committee, should oversee the production of the Langstaff Master Plan and implementing documents.

FINANCIAL CONSIDERATIONS:

It is proposed that the Town manage the process to produce the Master Plan and implementing documents, including paying the consultant’s fees and administration costs. It is also expected that the Town will hire a full time Project Manager, on contract, also to be financed by the developer group. The major land owners will finance this project and receive a credit against future development charges, subject to the approval of a Development Charge By-law.

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 area has a total area of approximately 46.8 hectares (115.6 acres). The western portion, between Yonge 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) that is located in Richmond Hill, 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, the land assembly and redevelopment anticipated by that Plan did not occur.

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, infrastructure requirements, water, sanitary and storm transportation and soil 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 currently 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.

Evolution of land uses in the area in the past 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 will directly influence the redevelopment potential of the Langstaff area.

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 Highway 407 Transitway with stations within the vicinity of the Langstaff area Environmental Assessment currently underway);

· the relocation of 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 (BRT or subway) and a Highway 7 Transitway;

· redevelopment of the Jail Farm lands in Richmond Hill as a mixed–use large format retail warehouse centre with low, medium and high density residential;

· protection of motor vehicular access (Cedar Avenue) under Highway 407 to link Richmond Hill and Markham; and

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

A proposal by York Region (VIVA) to acquire all the lands between Yonge Street and the CN railway to establish an Operations and Maintenance Facility was abandoned by Regional Council, at its meeting on May 24,2007.

Evolution of the policy context over the last number of years

The Langstaff area is a part of the Richmond Hill/Langstaff Gateway Urban Growth Centre, as identified by the Province in the Growth Plan for the Greater Golden Horseshoe (2006) and has been identified as a Regional Centre in the Region of York’s Centres and Corridors policies (ROPA 43). There are also a number of changes to planning policy and legislation that have occurred, or are under review, which will also directly influence the feasibility of redevelopment potential for the Langstaff area. These changes include:

· approval of the Town’s Strategic Plan and Corporate Goals, which encourages environmental sustainability, fiscal stewardship, infrastructure management, managed growth and creating quality communities;

· the Langstaff Sewer and Watermain Feasibility Study now underway by the Town (will need to be updated to consider the development now proposed);

· adoption of the Markham Transportation Planning Study (2002), currently being updated;

· 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, and TIF financing;

· revision to the Town’s Community Improvement policies;

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

· MoveOntario 2020, a rapid transit plan for the Province of Ontario, which includes, amongst other proposed projects, the extension of the Yonge subway line north from Finch station to Highway 7 (Langstaff).

Advancement of landowner and developer interest in the last year

There has also been a significant increase, in the past year, in landowner and developer interest related to the redevelopment of the Langstaff area. The Town has received redevelopment applications, for large scale, mixed use redevelopment, including office, retail and high density residential uses, for lands west of the CN railway line, and there is also some developer interest for the lands east of the CN railway line.

Proposed Development between Yonge Street and the CN railway line.

The applicants are proposing a preliminary Master Concept Plan comprised of five development areas. Each development area consists of different uses and built forms. Development Area 1, located adjacent to Yonge Street, is proposed to include a 200 room hotel and/or office tower component, with potential for mid-rise (up to 8 storeys) development, grade-related retail and underground parking. Development Areas 2, 3, and 4 are intended to be comprised of a mix of high density residential uses. A series of high rise (up to 16 to 28 storeys) point towers with connecting eight storey podiums are proposed, with townhomes integrated within and around the podium buildings. The applicants have indicated that the residential uses and built forms proposed for Development Areas 2, 3, and 4 can accommodate approximately 3,000 residential units. Lower-rise retail (up to 2 to 3 storeys) and office commercial uses are proposed for Development Area 5, adjacent to the GO Transit (former CNR) Railway Line. (See Figure 4 – 2006 Proposed Redevelopment Concept.)

The densities currently proposed by the applicants are estimated to be in excess of 625 residents and jobs (combined) per hectare, which is more than three times the 200 residents and jobs (combined) per hectare minimum gross density target in the Provincial Growth Plan. The densities proposed need to be further considered through a Town driven Master Plan exercise, given that there are servicing and transportation capacity constraints that will, in part, restrain development potential. Community facilities, such as parks, open space, schools and watercourses also need to be incorporated into the plan, to meet the needs of residents and workers in the area. The applicant’s submissions are expected to be revised in the context of the Langstaff Area Master Plan, as it is developed.

Town to lead Master Plan exercise

With the changes to the land uses in the surrounding area, the evolution of the policy context, and the advancement of landowner and developer interest, it is clear that the Town needs to provide clear direction regarding the appropriate course of action and specifically guide the development of the area in consultation with area landowners and the public.

The intense high-order land use development proposed for the Langstaff area will have a regional influence that extends well beyond its boundaries. The Langstaff area should be a concentration of cultural, employment, government, institutional, live-work and residential activities. Consequently, to ensure the community is sustainable it needs to be well designed and transit oriented.

New development in the Langstaff area should be based on development principles and practices that will create an attractive, efficient and liveable self-contained community with compact neighbourhood(s), designed to promote pedestrian activity and social interaction. The neighbourhood(s) should have a focal point or centre, with a mix of residential, commercial and community uses and activities, including opportunities for education, recreation, shopping, working and worshiping.

Special attention must be paid to protecting the public realm and creating quality public spaces, parks, streetscapes, and public buildings, which are connected by sidewalks and paths.

Provincial Growth Plan includes Langstaff as and Urban Growth Centre

The Growth Plan for the Greater Golden Horseshoe (GGH) identifies the Langstaff area as a part of an Urban Growth Centre. Urban Growth Centres are to be planned:

· as focal areas for investment in institutional and region-wide public services, as well as commercial, recreational, cultural and entertainment uses;

· to accommodate and support major transit infrastructure;

· to serve as high density major employment centres that will attract provincially, nationally or internationally significant employment uses; and

· to accommodate a significant share of population and employment growth.

This plan includes principles to guide how land development decisions are made. The Growth Plan principles are as follows:

· build compact, vibrant and complete communities;

· plan and manage growth to support a strong and competitive economy;

· protect, conserve, enhance and wisely use the valuable natural resources of land, air and water for current and future generations;

· optimize the use of existing and new infrastructure to support growth in a compact efficient form;

· provide for different approaches to managing growth that recognize the diversity of communities in the GGH;

· promote collaboration among all sectors – government, private and non-profit – and residents to achieve the vision.

The Growth Plan targets densities of a minimum 200 residents and jobs (combined) per hectare, by the year 2031, for Urban Growth Centres. Staff recommend that proposals for development in the Langstaff area in excess of minimum density targets will require a high level of review and study to ensure that the hard and soft infrastructure required to support the redevelopment will be delivered.

Master Plan exercise to start with adoption of guiding development principles

To begin to create a sustainable community in Langstaff a set of development principles should be endorsed by Council now and incorporated into the Town’s Official Plan. The Official Plan should also re-designate Langstaff as an Urban Growth Centre, consistent with Provincial and Regional policies. These principles and the designation of the Langstaff Area as part of an Urban Growth Centre should be framed to promote consideration of the Town’s economic, environmental and social goals for the area and to guide the preparation of the Master Plan and implementing documents.

The recommended Economic principles include:

· provision of a mix of residential, commercial and community land uses;

· an appropriate balance of employment and residential land uses must be established;

· major office development, oriented towards Yonge Street, to take advantage of existing and proposed public transit should be incorporated;

· provision of appropriate connections to unite the east and west Langstaff areas together;

· early phases of construction should encourage and promote the full build out of a compact, pedestrian friendly and transit supportive urban form community in an orderly and efficient manner over an extended period of time; and

· appropriate phasing of infrastructure construction to ensure that all stages of the plan can be implemented.

The recommended Environmental principles include:

· providing a compact, pedestrian friendly environment;

· protection of the public and private realm, including rehabilitating and re-naturalizing the Langstaff Woodlot and Pomona Creek, including constructing new Storm Water Management facilities, implementing tree preservation measures and mitigation of soil contamination;

· creation of quality public spaces, parks, streetscapes and public buildings (parkland should be required in accordance with the requirements in the Official Plan and Parkland Dedication By-law);

· developing a public transit supportive environment;

· providing pedestrian connections between public transit and the community focal point(s);

· providing pedestrian connections between the community focal point(s) and the balance of the neighbourhood(s);

· providing an appropriate compact built form with a consistent high quality urban design for the public and private realm;

· creating a community design that responds to the location of transit stations; and

· mandating efficient and sustainable building and site design features (e.g. LEED).

The recommended Social principles include:

· opportunities for a variety of community services, such as community centres, parks, places of worship and schools;

· providing live work opportunities; and

· provision of a variety of housing types to support diversity in housing needs by income, age and other demographic characteristics (townhouses, stacked townhouses, mid and high-rise apartments).

The Economic, Environmental and Social principles will be refined as specific policies, setting out criteria for the development of the public and private realm, that will be articulated in the Master Plan and Secondary Plan documents.

Official Plan amendment recommended

Staff recommend these principles be endorsed by Council, and the Official Plan be amended (draft amendment attached) to designate the Langstaff Area as part of an Urban Growth Centre and to incorporate the principles, outlined above into the Official Plan.

With the Langstaff Area identified as an Urban Growth Centre, to be developed according to these policies, the Town can begin the process of developing a Master Plan, and a Secondary Plan amendment for the area, in consultation with stakeholders. The development of these plans should demonstrate leading edge sustainability and urban design principles, while being mindful of the transportation opportunities and constraints (e.g. limited vehicular access to the area, proposed extension of the Yonge Street subway, proposed Highway 407 transitway) in the area.

Process

Staff recommend that the master planning and secondary plan amendment process be modeled after the collaborative Secondary Plan preparation process used successfully by the Town, most recently with the Box Grove Secondary Plan. The process should be managed through the Thornhill Sub-committee comprised of Mayor Scarpitti ex officio, Deputy Mayor Jones, Regional Councillor Heath and Councillors Burke and Shapero.

Under the direction of Thornhill Sub-committee, the Town will retain an Urban Design Architectural/Planning lead consultant, and sub-consultant firms to produce the Master Plan vision for the community and related technical studies. The Town will have the responsibility for managing the process including paying the consultant’s fees. However, the major land owners will finance the fees paid by the Town and will be given a credit against future development charges, subject to approval of such costs in an Area Specific Development Charge By-law. It is also expected that the Town will hire a full time Project Manager, on a contract basis, also to be funded by the developer group.

Pre-qualification proposals from candidate firms, to act as the lead consultant for the multi-disciplinary Master Plan process, will be requested. These proposals along with a draft Terms of Reference for the hiring by the Town of the sub-consultants (planners, engineers, transportation, geotechnical and urban design etc.) to undertake the preparation of the Master Plan will be prepared and reviewed with the Thornhill Sub-committee. Pre-qualified lead consultants will be asked to make submissions in response to a request for proposals, in accordance with the Town’s purchasing By-law. The candidate firms will be interviewed by a selection committee, comprised of the Thornhill Sub-committee, funding landowners and staff. Staff will report back to Development Services Committee with recommendations regarding consultant selection, the recommended Master Plan study process and timelines including the public consultation program.

The selection committee will recommend the lead consultant based on the Town’s normal selection criteria, including technical expertise, project management ability, vision and creative philosophy, facilitation and consensus building, familiarity with the Langstaff Area issues, expertise and achievements, quality of presentation and graphics, and price and value.

As there is a small portion of land between Langstaff Road East and Highway 407 that is located in Richmond Hill, Richmond Hill staff will be included on the Technical Working Group.

Continued role for The Butler Group Consultants Inc.

The Butler Group Consultants Inc. completed an analysis of the opportunities and constraints for redevelopment in the Langstaff Area. Their report was submitted to Development Services Committee in June 2006. That report evaluated the pros and cons of four scenarios: maintaining the status quo (existing zoning), residential/commercial redevelopment in accordance with the current secondary plan, upgraded employment lands, or high density residential. The advantages and disadvantages of each of these scenarios were evaluated on the basis that a Regional transit operations and maintenance yard was going to proceed on at least part of the lands, which is no longer the case.

The Butler Group Consultants Inc. will not begin the second phase of the Langstaff Study. The unspent funds should be reallocated for a peer review of the Master Plan concepts and technical studies, as required.

The Butler Group Consultants Inc. will remain on retainer to the Town to provide ongoing consulting services related to the evaluation of the redevelopment proposal(s) and Master Plan concepts for the Langstaff Area, on a peer review basis.