Report to: Development Services Committee Report Date:
SUBJECT: Sustainable Development Standards and Guidelines:
- Request For Proposals
- Interim Sustainability Measures
PREPARED BY: Valerie
Shuttleworth, Director of
RECOMMENDATION:
That the report dated
That Council endorse the Request For Proposals attached as Appendix “A”;
That the members of the Environmental Issues Committee act as a steering committee for the duration of the study and finalization of the guidelines;
That Council continue to target minimum LEED Silver for all new municipal buildings and additions/renovations to municipal buildings;
That, as an interim measure to remain in place until completion of the Sustainable Development Standards and Guidelines Study, Council confirm LEED silver as the minimum standard for all new medium and high density residential developments;
That, as an interim measure to remain in place until completion of the Sustainable Development Standards and Guidelines Study, Council encourage institutional, commercial and industrial developers to apply site development and building construction techniques that reduce heat island effect, minimize storm water run-off, increase infiltration, include rain water harvesting, grey water re-use, cool roofs and green roofs, permeable paving, landscaping, energy efficiency and general water conservation and lead to more energy efficient and environmentally sensitive developments;
That, as an interim measure to remain in place until completion of the Sustainable Development Standards and Guidelines Study, Council encourage builders to apply Energy Star standards, as developed by Natural Resources Canada (NR Can), for low density housing;
That staff consult with the development industry, through the Developers Round Table, and report back to Development Services Committee on any implementation issues pertaining to the interim measures and the study process;
That the transition process for current development applications, as outlined in this report, be endorsed;
That, as part of the study, an
Official Plan Amendment be prepared to ensure the Town fully utilizes the new
provisions of Section 41(4) (2) of the
And that Staff be authorized and directed to do all things necessary to give effect to this resolution.
EXECUTIVE SUMMARY:
Since the early 1990’s, the Town has been moving toward
creation of more sustainable neighbourhoods and communities based on the
principles of New Urbanism. With the
adoption and application of the Markham Centre Performance Measures document in
2003, the Towns’ sustainability agenda advanced into the precinct and site
development area. At the same time, staff, Council and some developers have
seen the benefit of constructing buildings through the LEED (Leadership in
Energy and Environmental
The time has come for the Town to proceed to develop Sustainable Development Standards and Guidelines to apply on a Town wide basis. Staff recommend that the study and guideline development proceed in two phases. Phase one will result in production of Site Guidelines and an implementation strategy. Phase one is targeted to be completed by the second quarter of 2009. Phase 2, Neighbourhood guidelines will follow in 2009. Terms of Reference for Phase 1 are attached for Committee’s endorsement.
Council and staff have also discussed the need for interim sustainability targets to be put in place for the duration of the study. This has already been initiated for medium and high density residential development. As a current requirement for receiving servicing allocation, medium and high density development must, among other matters, achieve a minimum of LEED silver rating. Therefore, no additional interim targets are required for that category of buildings. This report addresses the need for interim sustainability targets for low density housing and ICI projects.
PURPOSE:
The purpose of this report is two fold. First, it outlines a study process leading to adoption of Sustainable Development Standards and Guidelines and requests authorization to release Terms of Reference attached as Appendix “A”. Second, this report proposes adoption of interim measures to advance the Town’s sustainability agenda throughout the duration of the study.
BACKGROUND:
The Town initiated a
“sustainable” direction for growth over a decade ago
Markham Centre Advisory Group Developed Performance Measures in 2002, updated
in 2007
In
2002, the Markham Centre Advisory Group sponsored a series of public workshops
focussed on five key themes: Greenlands, Transportation, Built Form, Green
Infrastructure and Public/Open Spaces, designed to measure the Town’s success in
developing a mixed-use and environmentally
sustainable downtown known as Markham Centre.
The resulting Performance Measures
Document, which was endorsed by Council in 2003 and incorporated as an appendix
to the Markham Centre Secondary Plan, received an award for Sustainable
Community
In order to ensure the Performance
Measures continue to be current and leading edge, the Town, in 2007, retained a
consultant to assist staff in up-dating the document including consideration of
LEED criteria (Leadership in Energy and Environmental
The revised document, which was endorsed by Development
Services Committee on
Staff have encouraged and negotiated sustainability measures in development approvals
Since the introduction of the Markham Centre Performance Measures staff have had many discussions with development applicants regarding introduction of a number of sustainable development measures such as green (or white) roofs, permeable paving surfaces, LEED certified buildings, “bird friendly” buildings, bio-swales, to name a few. These discussions have taken place with developers/builders across Town, and not just in Markham Centre. Developers have embraced these new ideas to a varying degree of success. It is clear that Markham Centre developers, in large part due to the history of consistent application of the Performance Measures document, have gained a better understanding of the benefits of “going green” sooner than others in the Town. The majority of Markham Centre developers are now seeking LEED silver accreditation.
Council has also probed architects and developers and
consistently encouraged them to do more in the area of sustainability. Over time, the development industry is gra
It is also important that the Town continue to lead by
example. For example, the new Cathedral
Fire Station and the East Markham Community Centre are targeted to receive LEED
silver certification with options for possible gold certification to be
considered. Recent additions and renovations to municipal buildings have
incorporated a broad range of sustainability measures, from green roofs to
solar hot water heating.
Council strives to
gain a better understanding of LEED
Through consideration of the revised Markham Centre Performance
Measures document, Council sought a better understanding of the LEED program and
requested that our LEED consultant give a presentation to Development Services
Committee. On
- energy and atmosphere (27%);
- indoor air quality (23%);
- materials and resources (20%);
- sustainable sites (22%); and
- water efficiency (8%).
Mr. Emodi also explained the approximate average capital cost
for a certified green building is around a 2% - 4 % cost premium for LEED
certified and Silver, which is typically $3.00 - $5.00 per square foot, and
around a 10% cost premium for LEED Gold.
However, he also pointed out that the financial benefits or savings of
green design run from $50.00 (certified and silver) to $75.00 (gold and
platinum) per square foot in LEED buildings, over their life cycle.
Planning Act Changes (Bill 51) Related to
Sustainability
In the fall of
2006 the
The
However, Section
41 (4.1) 3. of the
LEED credits, in
large part, come from construction methods, building systems and equipment. Many of these items are interior to the
building and only regulated under the Ontario Building Code (OBC). While a number of building code
changes related to energy efficiency are being phased in, most measures we
are discussing remain beyond current OBC requirements. However, as of
December 31, 2011, the Building Code will require new houses to meet standards
that are substantially in accordance with EnerGuide 80 and also require that
new non-residential and larger residential buildings meet standards that are
substantially in accordance with energy efficiency levels that are 25% higher
than the Model National Energy Code for Buildings (which will be similar to
LEED).
Until the OBC is
changed, the Town can continue to negotiate with developers and builders to
construct buildings that meet LEED criteria and link servicing allocation and
municipal approvals to sustainability objectives. Official Plan policy and conditions of
approval can reinforce Town objectives, but Official Plan policies and Site
Plan requirements to compel a builder/developer to construct a LEED building remain
beyond our statutory authority under the
In the April 3,
2007 Report to Development Services Committee re Bill 51,
As part of the
“Sustainable Development Standards and Guidelines” Study, staff will, together
with the chosen consultant, develop sustainability polices related to the
exterior design of all new buildings constructed in the Town.
As well, section 41(4)(2)(e)
allows the municipality to address sustainable design elements on any adjoining
highway, including “trees, shrubs, hedges, planting or other ground cover,
permeable paving materials, street furniture, curb ramps, waste and recycling
containers and bicycle parking facilities…..” These requirements will also be determined
and documented through the Sustainable Development Standards and Guidelines Study.
OPTIONS/ DISCUSSION:
Sustainable
Development Standards and Guidelines Study to proceed in Two Phases
The Town of
The majority of the indivi
Phase 1: Site
Guidelines in 2008/2009
The preparation of Site Guidelines will benefit from the
results of work already completed in this field. The Markham Centre Performance Measures
Document has been approved by Council, and contains measures that have
equivalents in the LEED-NC (New Construction) and LEED-ND (Neighbourhood
Development) documents. The LEED-NC
document is internationally recognized, familiar to the local development
industry, and has been used extensively in the preparation of sustainable
development guidelines (with local modifications) by many municipalities in
Phase 2:
Neighbourhood Guidelines in 2009/2010
The current status of work regarding sustainable guidelines
is that these guidelines exist at the Site level, e.g. LEED-NC, and have been
in use for some years; but there are no current guidelines at the Neighbourhood
level that are nationally recognized, or in general use. The USGBC (U. S. Green Building Council) has
developed a draft set of LEED-ND (Neighbourhood Development) guidelines, which
are being tested through a pilot program started in 2007 and involving 238
projects in 6 countries. This pilot
program should yield preliminary results in 2008, with a proposed launch of the
LEED-ND Guidelines in 2009. The CaGBC
(Canadian Green Building Council) is currently modifying the USGBC draft
LEED-ND document into a Canadian version, which should have preliminary results
in 2009. It is recommended that the
results of these studies be used as a basis for the preparation of Town of
Need for Interim Guidelines to be in place for duration of study
The Phase 1 Study for Site Guidelines is at the Request for Proposals (RFP) preparation stage (see Appendix “A”, attached). The RFP is ready for review and approval by Council. The RFP process and the selection of a consultant will take 2-3 months. The study will start in May-June 2008 and should be completed by May 2009. Council has suggested Interim Guidelines need to be adopted until the Phase 1 Study is completed.
The Town receives applications for several building types and categories. The three broad categories are: medium and high-rise residential; low-rise residential; and ICI (industrial, commercial, institutional) uses. It is recommended that interim guidelines be different for each category, as described further below.
Markham Council, on October 17, 2006 endorsed a principle that “where, through construction of a LEED building, servicing capacity is saved, any such saving, when realized as additional servicing allocation capacity by the Region, should be allocated to the developer of the LEED building that “created” the additional capacity for use on the site that created the capacity or another site owned by the same developer”. Partly in response to this Markham Council resolution, in June of 2007, York Region adopted a “Sustainable Development through LEED” program, in relation to servicing allocation. The program is intended to apply to medium and high-density residential development, and provides a servicing allocation bonus based on a minimum of LEED-NC Silver standards, with additional modifications to suit regional criteria, such as water conservation; location next to transit; location within Regional Centre, Corridor or Local Centre; density target of 2.5 FSI; and 3-stream waste management.
The Town of
Interim Guidelines
for Different Building Categories
Upcoming medium and high-rise residential development will be regulated by the York Region “Sustainable Development Through LEED” guidelines, as a condition of servicing allocation and site plan approval. The Guidelines are based on the LEED-NC program, which has been designed for this building type and category.
Low density residential development will
in future be subject to the LEED Neighbourhood
The ICI (industrial, commercial, institutional) category includes several building types, from single storey industrial and retail structures to mid- and high-rise office buildings. The current LEED-NC category was designed to address sustainable design for mid- and high-rise commercial buildings. However, the typical ICI development in the Town is a low-rise retail building or plaza. Large industrial or office commercial buildings are infrequent, and are very competitive across the GTA in terms of costs and leasing/sales rates.
It is recommended that, rather than looking to achieve strict conformance to LEED-NC or Energy Star for ICI developments, staff continue to promote many of the measures contained in LEED and Energy Star, such as minimizing heat island effect, minimizing storm water run-off, increasing infiltration, rain water harvesting, grey water re-use, cool roofs and green roofs, permeable paving, landscaping, energy efficiency and general water conservation with our ICI applicants. These measures will be discussed and applied on a project-by-project basis, depending on the size and tenure of the project. Imposition of a fixed standard at this time, without the benefit of a thorough study, evaluation and consultation process could prove to be a disincentive in an already slow and competitive ICI market.
The Toronto Green Development Standards (GDS) were adopted
by Toronto Council in 2007. These
Standards are voluntary, because there is no statutory power to make them
mandatory. The City’s Legal staff is
reviewing Bill 53 (the City of
Consultation with Industry
Town of
As well, the schedule and timing
for roll-out of the larger study program and consultation with the industry
during that program/study will also be discussed. Formalized consultation with the industry,
similar to the Make It Happen Task Force, would be appropriate in the course of
the study.
Transition process for applications progress is proposed.
As with any new initiative, staff has reviewed the need for appropriate transitioning of the new interim measures. It is important to allow the development industry and applications in process some reasonable amount of time to accept and work through the interim measures. A rigid application of the new interim measures, in the absence of any statutory authority, is not advisable. A process of discussion, education and acceptance must continue. The following are proposed transition guidelines which will be also be discussed with the industry at the next developers round table meeting:
1 For medium and high density residential site plan approval applications:
· Applications that are in process, but not yet site plan endorsed should comply, unless compelling reasons or hardship can be demonstrated;
· Applications that are in process that are endorsed, but not yet site plan approved should apply to the extent possible. Compliance will depend on the status of building permit drawings and contractual arrangements with suppliers and tenants/purchasers;
· Applications that have received site plan approval shall proceed as approved (it should be noted that many of the recent developments in this category are achieving some form of LEED accreditation/sustainability measures in any event);
· All new, incoming applications should comply.
2 For low density residential draft plans of subdivision:
· Applications that are in process, but not yet draft approved should comply with Energy Star requirements at the building permit stage, unless compelling reasons or hardship can be demonstrated;
· Applications that are in process that are draft approved should comply if possible. Compliance will depend on the status of building permit drawings and contractual arrangements with suppliers and purchasers;
· Applications that have received draft plan approval and are registered or close to being registered shall proceed as approved;
· All new, incoming applications should comply.
3 For ICI development:
- staff will continue to promote many of the measures contained in LEED and Energy Star, such as minimizing heat island effect, minimizing storm water run-off, increasing infiltration, rain water harvesting, grey water re-use, cool roofs and green roofs, permeable paving, landscaping, energy efficiency and general water conservation with our ICI applicants, depending on the size and tenure of the project.
Staff will also report back to Development Services Committee on any implementation issues arising from the proposed transition guidelines, following the developer round table meeting.
FINANCIAL CONSIDERATIONS AND TEMPLATE: (external link)
Not applicable.
ENVIRONMENTAL CONSIDERATIONS:
The completion of Sustainable Development Standards and Guidelines will advance the Town’s environmental agenda.
ACCESSIBILITY CONSIDERATIONS:
Not applicable.
ENGAGE 21ST CONSIDERATIONS:
Sustainable
Development Standards and Guidelines align with the following key Town of
BUSINESS UNITS CONSULTED AND AFFECTED:
Not applicable.
RECOMMENDED BY:
________________________________ ________________________________
Director of
ATTACHMENTS:
“Appendix A” - Request for Proposals
- Sustainable Development Standards and Guidelines
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stuff/reports\sustainable development standards and guidelines