Report to: Development Services Committee Date of Meeting: June 10, 2008
SUBJECT: Civic
Mall Preliminary Design Concept
Markham
Centre
PREPARED BY: Richard
Kendall, Manager of Development, Central District
Extension 6588
RECOMMENDATION:
That the staff report dated June 10, 2008 titled “Civic Mall Preliminary
Design Concept, Markham Centre” be received;
That Council endorse the preliminary
design concept for the Civic Mall, through the Remington Group’s Downtown
Markham project, as discussed in this report;
That Council authorize staff to retain Janet Rosenberg and
Associates, Landscape Architects, as the Town’s consultant to proceed with
further concept development as required, detailed design work, cost estimating,
and phasing options associated with construction of Phase 1 of the Civic Mall
park component, together with YRRTC, the Technical Working Committee and the
Remington Group;
That the purchase order for Janet Rosenberg and Associates
(P8266) for detailed design of the park component within the Civic Mall be
increased by $48,600 for the above work;
That funding for the above, in the maximum amount of $48,600,
be from Planning and Urban Design’s Capital
Account #81-5350-7647-005 entitled “Markham Centre Amenity / Urban Park (Phase
I Design)” and that the balance in the account be retained for the original
purpose intended;
That staff report back to Council
on the proposed design for the Civic Mall, including detailed cost estimates,
funding sources, construction and phasing of the Civic Mall, as well as
operational and maintenance matters, in the fall of 2008;
And that Staff be authorized and
directed to do all things necessary to give effect to this resolution.
EXECUTIVE SUMMARY:
In February, 2008, Council
endorsed the recommendations of a staff report which outlined a series of
design principles for the development of a dedicated rapid transit alignment
and linear park along the Civic Mall within the Remington Group’s Downtown
Markham project. The report also spoke
to retaining a landscape architect to undertake the design of the park space,
the formation of a technical working group, and identified funding sources for
the design concept. Staff were directed to
report back to Council, prior to the summer recess, on the preliminary design
concept for the Civic Mall, including possible funding sources and operational
issues.
The Civic Mall is a unique linear
urban space which will include a transitway, park and park like elements. York Region Rapid Transit Corporation (YRRTC) is looking to
construct the transit corridor portion of the Civic Mall to closely align with
the occupancy of Remington’s adjacent residential buildings in late 2008 to
early 2009.
YRRTC staff have been working with
Town staff, the Remington Group, and Janet Rosenberg and Associates, Landscape
Architects (the Town’s Landscape consultants), to develop a preliminary design
concept for the Civic Mall. This design
concept, which builds on the previously endorsed design principles, will incorporate
a number of unique sustainability components, including the use of recycled or
refurbished materials, permeable paving, locally sourced materials, solar/LED
lighting, and native plantings.
In order to have the rapidway
operational coincidental with the occupancy of the apartment buildings,
detailed design work needs to occur over the summer and construction will have to
commence toward the end of this year, with completion targeted for the spring
of 2009. The Town and YRRTC’s tendering
processes should be integrated to ensure a seamless integration of uses within
the Civic Mall.
A number of working sessions have
been held with staff of Planning and Urban
Design, Engineering, Community & Fire Services, the consulting landscape
architect, the Remington Group and YRRTC to understand and address maintenance,
operational and other related issues.
Staff intend to report to Council
on the detailed design for the Civic Mall, including detailed cost estimates
and possible funding sources, following the summer recess. That report will also breakdown the costs
associated with the detailed design, construction and phasing of construction
of the Civic Mall, as well as operational and maintenance matters.
FINANCIAL CONSIDERATIONS:
Funds to retain the landscape
consultants to undertake the Civic Mall design are available from the Planning
and Urban Design’s “Markham Centre Amenity / Urban
Park (Phase I Design)” Capital
Account. A subsequent report on the detailed
design of the Civic Mall will address potential funding sources for the construction
of the park.
Capital Account 81-5350-7647-005 for
the Markham Centre Amenity/Urban Park (Phase 1 Design) has a Budget of $100,000,
with expenditures to-date of $1,400. There
has been a previous purchase order to Janet Rosenberg and Associates of $50,000
for conceptual design of Civic Mall, leaving a balance available for award of
$48,600 for the detailed park design of the park component within the Civic
Mall as discussed in this report.
Design Principles for a ‘Shared Space’
The design principles are intended
to articulate the vision for a shared space which addresses collectively the
needs of the pedestrian, cyclist and transit operations, all of which have an important
stake in the use and enjoyment of this space.
The endorsed design principles are:
- A shared and programmable public space
- A sustainable public space
- A connected public realm
- A comprehensive design approach
Key design elements to facilitate
the implementation of these design principles, were also identified to address
the integration and operational aspects for the shared use of the Civic Mall,
relating to transit alignment, geometry, operating speed, running surfaces,
storm water management practices, sustainability and plant material.
Preliminary Design Concept
Since February, YRRTC staff have been working with Town
staff and Janet Rosenberg and Associates, Landscape Architects and the
Remington Group to develop a preliminary design concept which reflects the
design principles endorsed by Council and which responds to the specific
operational requirements of the Town and YRRTC.
The landscape consultants have also
developed a number of design guidelines from the previously articulated design
principles which have furthered their design vision for this linear, urban
space. These guidelines are intended to:
·
reflect the needs of all users within the space;
·
promote safe interaction between users and effectively
communicate transit routes;
·
connect to larger open space networks while
reflecting the character of the adjacent land uses;
·
address the requirements of the various
stakeholders, while ensuring consistency with the Markham Centre vision;
·
allow for flexible programming of the space;
·
provide for the infrastructure required to allow
trees to reach maturity and flourish; and,
·
incorporate principles of universal
accessibility and crime prevention.
Using these design principles and
guidelines, the landscape consultant’s preliminary design concept reflects a
high quality public realm to accommodate the safe movement of transit and
pedestrians alike. The design concept proposes
the use of contemporary materials, employed cohesively throughout the space
(Figures 3 and 4). The concept is one
that can adapt to reflect the different character of the adjacent land uses and
spaces (i.e. residential verse commercial), but remains flexible depending on
the long term build-out of Markham Centre (Figures 5 and 6). The space seeks to create an outdoor living
room for Markham Centre and the broader community.
Taking inspiration from the
adjacent Rouge River,
as well as the tributary which runs north/south through the Remington lands,
the design concept looks at the Civic Mall as an urban tributary, linking the
various communities within the Downtown Markham plan. The
concept, which includes the use of a dynamic paving pattern intended to
establish a modern space.
The colours of the pavers can be reversed
to distinguish the rapidway from the pedestrian components of the Mall. A tactile strip is also proposed along the
edge of the rapidway to differentiate the uses.
These patterns could then be extended into the walkways and other
contiguous components of the adjacent developments. The development concept includes a series of
circular landscape islands which will accommodate a variety of plant material,
water features or art installations. The
proposed water features could serve as nodes and entry features at main intersections.
The random location of these
circles is intended to allow for a variety of uses, as well as a variety and
scale of plant materials with different ages, heights and foliage, to provide a
range of different experiences throughout the year. In realizing this vision and meeting these
objectives, the Civic Mall is intended to be transformed into a contemporary
forest, akin to that of New York City’s mall in Central Park or Bordeaux’s
forested pedestrian mall, where buses and pedestrians can move in between
layers of large caliper trees (Figures 7 and 8).
These circles would be substantial
in size to accommodate enough soil volume to ensure the plant material is
sustainable, while also addressing storm water run-off and infiltration. The design also explores the use of current
technologies such as silva cells to support plant sustainability through
minimizing soil compaction (Figure 9).
The edges of the circles could
accommodate seating within the more urban sections of the plan or a variety of
ground covers within the more residential sections. A combination of formal and relaxed planting
patterns could also be introduced in this fashion. The Civic Mall will be accented by
furnishings as well as a unique lighting system which could include light
columns along the bus route and light fields near water fountains. Certain trees will also be enveloped by
concrete circular benches creating opportunities for flexible seating. Work continues on reviewing options for site
furnishings which will provide a contemporary feel to the space and integrate
with on-going streetscape initiatives.
Markham Centre Streetscape Standards are Under
Review
Concurrent with the preliminary
design concept for the Civic Mall, staff have been working with a consultant to
finalize the streetscape standards for Markham Centre. Council previously endorsed incorporating a
higher level of material finish and street furniture, along with wider
sidewalks and enhanced street lighting within Markham Centre. This streetscape programme is evidenced, in
part, by the light standards which have been introduced along portions of Enterprise
Boulevard, Clegg Road
and Cox Boulevard. Staff have been working with the Remington
Group and consultants to finalize the specific components of the enhanced
streetscape programme as it relates to signage, pedestrian crossings,
boulevards, medians and plant material.
This enhanced streetscape
programme will be brought to Council for consideration in the fall. In the interim Town staff and the streetscape
consultants have been engaged in the discussions with the park design team to
ensure that a similar look, feel, design and quality of materials are
integrated into the park and streetscape designs to ensure a consistent, unified
and unique look for Markham Centre.
Working Group Established to deal with Coordination and Operational
Issues
The creation of a shared public
space which needs to address the requirements of multiple stakeholders requires
extensive coordination. Town staff have
been in regular meetings with representatives of YRRTC to identify and
articulate requirements associated with the delivery, operation and on-going
maintenance of this shared space. This
is of particular importance as it relates to the extent and wide variety of
paving materials proposed throughout the Civic Mall.
The meetings to date have reviewed a number of key criteria
which are intended to form the basis for a document identifying agreed to principles. Once finalized, this document will be used to
develop a Memorandum of Understanding or Shared Space Use and Maintenance
Agreement between the Town and the Region.
Issues discussed include:
- Status
of the Civic Mall as parkland versus a public highway and applicability of
the Ontario Highway Traffic Act (Town versus Regional
Road and ownership issues). Access for emergency vehicles, lighting,
signage and ownership of this component of the Civic Mall also come into
play based on this determination.
- Lighting
– i.e. pedestrian scale level versus typical street lights. Terms of reference required for a
lighting strategy, including lighting as design and artistic elements to
create a sense of drama, and opportunities for solar lighting.
- Winter
maintenance and using a similar approach to snow removal employed in Markham
and Unionville Main streets (Business Improvement Areas). Snow to be removed from the higher traffic
pedestrian areas and the rapidway, with resulting windrows removed during
the night following a storm. Pedestrian
crossings to be designated at points along the rapidway for snow removal. A combination of salt and sand is
proposed for pedestrian areas, with salt being used on the rapidway. Snow storage areas adjacent to the
rapidway and snow removal limited to certain events during the winter.
- Cleaning
standards to reflect current service standards for Business
Improvement Areas, including annual flushing of sidewalks & boulevards
(spring), street sweeping once per week and waste receptacle collection
three times per week.
- Repairs
and associated responsibility between the Town and York Region. Rapidway to be maintained as part of the
Town's road maintenance program, while the transit station will be
maintained by YRRTC. The maintenance
programme to identify a reasonable life-cycle for the unit pavers,
including any special equipment required.
This programme to reflect the increased costs associated with
delivering, and the long-term maintenance of a high quality urban space. Life cycle replacement costs will also
need to be addressed.
- Unlimited
pedestrian access to the Civic Mall including crossing the rapidway at any
point. The use of textured
materials at anticipated high pedestrian traffic points to assist persons
who are visually impaired. Confirmation
of pedestrian versus transit vehicle rights-of-way in the Mall area (to be
finalized with VIVA and subsequently communicated to the public and
transit personnel).
- Traffic
signal priority for Viva vehicles entering and exiting the Civic Mall at Enterprise
Boulevard and methods to implement signal
timing at other intersections. Coordination
of Regional and Town of Markham
traffic signals required.
As noted, further work on these
and other issues will occur over the coming months resulting in a document of agreed
principles, intended to be used to develop a Memorandum of Understanding or
Shared Space Use and Maintenance Agreement between the Town and York Region. The construction, operational and maintenance
costs attributable to YRRTC versus those directly related to the Town’s the park
elements will be addressed at that time.
Sustainability Components of Design Concept
The design concept for the park component of the Civic Mall
incorporates principles of sustainability to ensure that long-term operational
and maintenance implications, tree survival, storm water management and
environmental benefits are properly addressed. Because the survivability
of trees is a very important element of this design, the design concept
contemplates the use of state-of-the-art urban tree planting techniques to
promote their long-term health and growth, accomplished primarily by fostering
root development in uncompacted soils (Figure 9).
Staff are investigating various technologies that maximize
soil volumes, increase water and air capacity within these soils, support
paving surfaces while providing uncompacted soil volumes and provide storm
water management benefits. In addition, the use of recycled or refurbished
materials, permeable paving, locally sourced materials, solar/LED lighting, and
native plantings, will be investigated through further design development to
insure success of this project.
YRRTC Endorsement of the Conceptual Civic Mall Design
YRRTC staff have been working
closely with Town staff and the landscape consultant and are preparing a
concurrent report to Regional Council to seek authorization to proceed with the
final design for rapidway portion of the Civic Mall. It is anticipated that this report will be
before Regional Council on June 12,
2008.
Preliminary Design Concept presented to Markham Centre Advisory
The preliminary design concept
plan was presented to the Markham Centre Advisory on May 8, 2008. The
comments from the Advisory were generally positive with much of the discussion
focused on the issues of ensuring a sustainable environment for the tree
programme. The use of new planting
techniques was discussed, along with the need for a variety of species with
different sizes and ages, and the timeframe for the trees to reach a level of
maturity which would provide for an appropriate tree canopy.
The Advisory discussed the need
for a civic space which creates a statement and the fact that much of the
effort to create such a space must be focused on the tree planting
programme. The phasing of the park
components was also discussed, as were the costs attributable to the enhanced
park space.
Proposed Funding of Park Design and Phasing of Construction
As outlined in the approved
Parkland Principles for Markham Centre, the majority of parkland within Markham Centre will be urban and high quality, and
developed to a higher standard of design and finish. The Town’s goal for Markham Centre is to
achieve an urban park design that is delivered at a minimum standard in the
order of three times that of typical Town-wide park development. The principles recognize that there may be
unique circumstances which warrant the development of certain parks to an even
higher standard of finish, such as the Civic Mall and the central park, and
that the cost per acre of these parks at a higher level of finish could exceed
$1.2 million per acre.
The conceptual park design for the
Civic Mall contemplates an extensive amount of paving materials, as well as
technologies to support sustainable tree growth. There is a variety of work that is progressing
on several fronts relating to ensuring the long-term viability of trees in an
urban setting. This work speaks to
larger, continuous unencumbered planting beds, the use of proper irrigation and
drainage, and addressing soil compaction issues. As a result of the proposed use of extensive
paving, unique lighting and incorporating specialized technologies into the
park design, the initial cost estimates exceed early budget expectations.
Consequently, staff will be
reviewing the design to look for opportunities to simplify components of the
programme, especially adjacent to the residential precincts within the Downtown
Markham plan, and will develop, with the consultants, a construction phasing
strategy. This strategy will seek to
introduce a sustainable tree planting programme as part of the initial delivery
of the Civic Mall, and allow for implementation of the ultimate park design,
including hard surface materials and water features, upon full build-out of
Markham Centre.
While YRRTC advises the rapidway
component is fully funded there are a number of options available to deal with
funding for the Town’s development of the Civic Mall. The approved parkland policies for Markham
Centre contemplate engaging the Markham Centre Landowners Group in the delivery
of park space throughout Markham Centre and work is on-going to craft a
Parkland Delivery Agreement with the group.
The Parkland Delivery Agreement is
intended to outline a process whereby payment equivalent to cash-in-lieu of
parkland owing will be applied to the delivery of finished, enhanced parkland
in Markham Centre. If this agreement is complete
by the time the final design is presented to Council, it may be one option to
fund this component of the Civic Mall. Available
Development Charge funds will also be an option to be reviewed.
The proposed funding source(s) and
possible phased implementation will be discussed in detail at the time a park
design is presented to Council. At that
time additional design fees associated with the costing, cash flow and delivery
model may be identified, as will potential costs associated with the
preparation of working drawings, contract administration and construction.
Tendering Process
At this time, The Town is in discussions with YRRTC to
determine the best way to proceed with the construction of the Civic Mall and rapidway.
From a construction integration and quality control standpoint, it would be
preferred if the design concept for Phase 1 of the park component and the rapidway
could be implemented in a coordinated manner, either as one contract or as two
contracts running concurrently or sequentially.
Staff are investigating several options including whether it
is feasible to procure construction of the park component of the Civic Mall
thorough the Region of York Consortium’s design build contract process. York
Region has entered into an arrangement with the York Consortium for a
public-private partnership to plan, design, finance, construct and potentially
operate and maintain the York Region Rapid Transit System. Staff will be
investigating various construction options and will report back with a
recommendation on a preferred option in the Fall.
Timing for Park Construction and Delivery
YRRTC is seeking to have the
rapidway operational to coincide with occupancy of the Remington Group’s Phase
1 apartment buildings. This is an ambitious
schedule which will require the detailed design of the Civic Mall to occur over
the summer with a recommended park design to be presented to Council early in
the fall. Construction could then commence
late fall or early 2009.
Coordination with Remington
Additional discussions will need
to occur with the Remington Group to implement the Civic Mall vision as it
relates to the adjacent development lands and ensure the respective landscape plans
reflect a similar use of materials, patterns and plant material. The key design elements identified for the
Civic Mall should continue through adjacent walkways where appropriate, to
ensure a seamless edge and integration between the public and private
spaces. In addition, it is critical for
the lighting and fixtures to be coordinated between the residential buildings
and the Civic Mall. Preliminary
discussions have occurred and more extensive discussions are required with the
Remington Group as the design evolves.