Report to: Development Services Committee Report Date: June 17, 2008

SUBJECT: RECOMMENDATION REPORT

St. Mark’s Coptic Church – Phase 1

455 Ferrier Street

Site Plan application to permit a three-storey cathedral to be used as a place of worship with recreational and educational facilities and other related uses.

File No. SC 08 110712

PREPARED BY: Stacia Muradali, ext. 2008

Planner, Central District

RECOMMENDATION:

That the report dated June 17, 2008 titled “RECOMMENDATION REPORT, St. Mark’s Coptic Church – Phase 1, 455 Ferrier Street, Site Plan application to permit a three-storey cathedral to be used as a place of worship with recreational and educational facilities and other related uses” be received;

That the application for Site Plan approval (SC 08 110712) be endorsed in principle, subject to the conditions attached as Appendix ‘A’;

That Site Plan approval be delegated to the Director of Planning and Urban Design, or her designate, to be issued following execution of a Site Plan Agreement. Site Plan approval is issued only when the Director has signed the Site Plan;

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

EXECUTIVE SUMMARY:

A Site plan application has been submitted by St. Mark’s Coptic Church to permit a three-storey cathedral at 455 Ferrier Street (the “subject property”) which is located on the north side of Steeles Avenue, west of Warden Avenue. The cathedral will be used as a place of worship with recreational and educational facilities, and other related uses. The proposal is Phase 1 of a larger multi-phase campus type development which is projected to develop over the next 14 years, based on a preliminary phasing plan provided by the applicant.

The applicant has submitted several technical studies in support of the proposed development. A Stormwater Management Report, Traffic Impact Study, Grading and Servicing Plans and a Concept Master Plan are currently under review. Preliminary comments have been received and are being addressed by the applicant. The applicant has been working with staff to implement appropriate sustainable development and traffic demand management practices for the proposed development.

The proposed development is generally acceptable, subject to the resolution of the outstanding issues identified in this report. The applicant has revised and upgraded the site plan in response to comments from staff. There is a parking shortfall of approximately 211 parking spaces for the proposed development. The applicant will be exploring alternative methods of addressing the parking shortfall including the implementation of travel demand management practices (TDM), shared parking with adjacent property owners and other appropriate measures which can assist in mitigating the parking shortfall.

1. Purpose 2. Background 3. Discussion 4. Financial

5. Others (HR, Strategic, Affected Units) 6. Attachment(s)

PURPOSE:

The purpose of this report is to recommend approval of the site plan application to permit the construction of a three-storey cathedral for the purposes of a place of worship and community centre.

BACKGROUND:

Subject property and area context

455 Ferrier Street (the “subject property”) is a vacant lot which occupies the entire block bounded by Steeles Avenue, Acadia Avenue and Ferrier Street with a lot area of 4.88 hectares (12 acres) (Figure 1).

The subject property is bounded to the south by Steeles Avenue with single family detached dwellings reversed to the south side of Steeles Avenue. There is commercial development with a gas station, grocery store, restaurants, retail and other commercial uses to the east, at the north west corner of Warden Avenue and Steeles Avenue. Two commercial developments, Metro Square and New Century Plaza, are located to the west of Ferrier Street. To the north across Acadia Avenue are office buildings and a place of worship (Figure 2).

Proposed cathedral to be used as a place of worship with recreational and educational facilities

St. Mark’s Coptic Church is proposing to construct a three-storey cathedral (Figure 5). In total, the cathedral will include five floors (two levels will be located below grade). The two lower levels will consist of offices associated with the place of worship, a church hall, bakery, gift shop and recreational and educational facilities (including a gymnasium, class rooms, fitness rooms and library). The ground floor and two gallery levels above will function primarily as a place of worship. There is an anticipated 1,394 seat capacity for the place of worship which is expected to increase to approximately 1,820 seat capacity in the future.

The total gross floor area of the cathedral is 7,077 square metres (76,176 square feet). The place of worship and accessory uses will comprise approximately 70% of the proposed building with the remaining 30% dedicated to recreational and educational facilties. 395 surface parking spaces are provided. The location of the parking spaces will occur to the rear of the cathedral along Ferrier Street and Acadia Avenue (Figure 4).

There is a centrally located open space to the north of the cathedral and an exterior main plaza to the west of the building. Both are illustrated on the attached site plan (Figure 4). The open space area to the north will be utilized for ceremonial events including weddings and funerary services. The main plaza to the west will also be used for ceremonial purposes, as a fire access route, and for temporary drop-off. The applicant has worked with staff to enhance the design of this space by discouraging vehicular access and improving pedestrian connectivity and circulation through the balance of the site.

Vehicular accesses are proposed on Steeles Avenue, Ferrier Street and Acadia Avenue. The Town is generally satisfied with the proposed accesses on Ferrier Street and Acadia Avenue subject to some improvements which are currently being addressed. The proposed Steeles Avenue access will require approval from the City of Toronto and TTC. Each of the proposed accesses is designed with right-in, right-out movements. The applicant is proposing a dedicated right-turn lane on Ferrier Street which is recommended by the Traffic Impact Study submitted by the applicant to provide a higher degree of accessibility to the site. The proposed driveway and dedicated right-turn lane on Ferrier Street will impact existing on-street parking on Ferrier Street. Town staff have determined that the right turn lane is not mandatory and prefer if it is removed from the site plan as its primary function is to accommodate peak demand which will occur for a short period of time on Sunday mornings. It would also have a visual impact and detract from the pedestrian urban environment. The site plan should be revised to show removal of the dedicated right-turn lane and show impact of the driveway on Ferrier Street. This is a condition of site plan endorsement (Appendix ‘A’). Some of the displaced on-street parking on Ferrier Street may be accommodated on Acadia Avenue however, this requires further evaluation.

Master Concept and Phasing Plans

The applicant has provided a master concept plan and phasing plan to assist with the review of this site plan application (Figure 6). The anticipated phasing includes the proposed cathedral (2008), an office building (2012), a day care centre and a seniors residence (2014), a private school (2015), a community centre (2017), a museum and papal quarters (2019), a small place of worship (2020) and a theatre (2022).

The site plan application review and technical studies conceptually take into consideration the future contemplated uses and overall functioning of the master concept plan, including, but not limited to, the servicing of the multiple components, traffic impacts and the provision of adequate parking. Site plan approval will be required for each subsequent phase of development. Revised technical studies will be required as part of any future site plan approval process.

The applicant is proposing to construct an underground parking structure as future phases are developed and there is an increased demand for parking. Ultimately, all of the parking for the overall campus type development will be provided underground.

Official Plan and Zoning By-law amendment applications approved in 2003

In 2003, Council adopted an Official Plan amendment (OPA No. 111) and Zoning By-law amendment (2003-199) to accommodate the cathedral and the future campus development.

OPA 111 redesignated the subject property from Industrial-Business Corridor Area to Commercial-Community Amenity Area which provides for the place of worship as the primary use, and the future uses functioning as a part of the religious campus. The intent of the Community Amenity Area designation is to provide for a multi-use centre offering a diverse range of services, such as community, institutional and recreational uses and to function as a significant and identifiable focal point for the area.

By-law 2003-199 rezoned the subject property from Business Corridor (BC) to Community Amenity with a Hold provision [CA(H)] (Figure 2). The site-specific CA(H) zone permits the proposed cathedral which will function as a place of worship and community centre. The proposed Phase 1 site plan application meets the site-specific development requirements. However, the proposed site plan does not comply with the Town’s parking requirements (discussed further below). 606 parking spaces are required to accommodate the place of worship and associated facilities within the cathedral. The applicant is proposing 395 surface parking spaces. The applicant will be exploring alternative methods of addressing the parking shortfall. A minor variance application will be submitted once the parking shortfall is addressed in a manner satisfactory to the Town.

The Hold provision appended to the zoning of the property can only be removed if Traffic, Parking and Servicing studies have been completed and a site plan agreement executed to the satisfaction of the Town. The applicant is required to apply to lift the Hold provision. Staff will bring forth a By-law for consideration to lift the Hold once the required conditions have been satisfied.

OPTIONS/ DISCUSSION:

Parking shortfall of 211 parking spaces

In 2003, Council adopted a By-law (2003-301) to deal specifically with parking requirements for places of worship. Parking for the place of worship, including any accessory uses (including the recreational and educational facilities) is calculated at 1 parking space per every 9 m2 of the net floor area of the worship area and any accessory uses. Based on this standard and the information provided by the applicant, 606 parking spaces are required. The applicant is providing 395 parking spaces.

A parking analysis was submitted as part of a Traffic Impact Study provided by the applicant. However, the parking analysis was based on a blended parking calculation of 1 space per 4 seats of the worship area capacity and 1 space per 40 square metres for the community centre uses. The parking analysis based on this interpretation of the By-law, has resulted in a parking shortfall of 211 parking spaces.

The applicant is providing 395 parking spaces on the surface which occupies a large portion of the site. Increasing the extent of the surface parking area is less than desirable from an urban design perspective. The Town has requested that the applicant explore alternative methods of addressing the parking shortfall including the implementation of travel demand management practices (TDM), shared parking with adjacent property owners to accommodate peak demand, providing a portion of the parking underground and/or any other appropriate measure which can assist in mitigating the parking shortfall. A combination of some of these methods should be examined and implemented to the satisfaction of the Town. The Traffic Impact Study should be revised to address the proposed measures and parking shortfall to the satisfaction of the Town before submitting a minor variance application to permit a reduction of the required parking and before execution of a site plan agreement (Appendix ‘A’).

Implementation of Travel Demand Management (TDM)

The applicant has recently provided a memorandum to the Town summarizing the proposed TDM implementation strategy. The Town has become more active in promoting and supporting the implementation of TDM strategies to new development. The subject property is ideally located within close proximity to major arterial roads (Warden Avenue and Steeles Avenue) and existing frequent transit services such as TTC along Steeles Avenue with connections to the Finch subway station.

The TDM memorandum prepared by Giffels recommends that the St. Mark’s Coptic Church become a member of the “smart Commute 404-7 Markham, Richmond Hill” Transportation Management Association (TMA) and implement TDM measures such as a commuter rideshare program which involves preferential carpool parking and a ride-matching program, promotion of transit use, provision of shuttle service to transit nodes, and facilitation of a pedestrian-friendly environment. The implementation of a TDM strategy to assist in mitigating the parking shortfall to the satisfaction of the Town will be included in the site plan agreement. The TDM strategy must be provided to the satisfaction of the Town prior to the submission of a minor variance application.

Traffic Impact Study

A Traffic Impact Study has been submitted and is under review by the Town and City of Toronto. Preliminary comments have been received and are currently being addressed. The Town has identified the need for a more detailed review of existing and future intersection operations and the type of control measures recommended at the intersection at the north east portion of Acadia Avenue. The Town has also requested that the Traffic Impact Study provide a more detailed review of pedestrian and vehicle accesses, particularly as they relate to adjacent developments. The Town has also indicated that the site plan should be revised to reflect removal of the dedicated right-turn lane on Ferrier Street as it accommodates peak demand which occurs for a short period of time on Sunday mornings, impacts existing on-street parking and diminishes the pedestrian and urban environment. The Traffic Impact Study should be revised to address removal of the right-turn lane. The City of Toronto has reviewed the study and has indicated that the proposed entrance on Steeles Avenue may impact the existing TTC bus stop. Additional details and review of siting issues related to the proposed entrance and the existing bus stop need to be provided and discussed with the TTC. The submission of a revised Traffic Impact Study to address the parking shortfall and mitigating measures, removal of the dedicated right-turn lane on Ferrier Street, implementation of a TDM strategy and any other issues identified by the Town, City of Toronto and TTC, to the satisfaction of the Town is required prior to submission of a minor variance application and is a condition of site plan endorsement (Appendix ‘A’).

Implementation of sustainable development practices

NORR Limited Architects and Engineers have proposed several sustainable design building practices and ecological landscaping strategies which will be applied to the proposed development. Some of the proposed initiatives are as follows:

• High efficiency glazing and wall and roof assemblies to reduce the overall energy consumption in the building;
• Provision of preferred carpool spaces and bicycle racks and implementation of a TDM strategy;
• Low maintenance and drought resistant plantings with an emphasis on native species.
• Daylighting strategies and use of natural light in interior spaces to reduce energy consumption;
• Stormwater retention area will be integrated with the landscaped area at the south-west corner of the site. This area will allow for greater water retention and infiltration into the surrounding landscape;
• Introduction of a seed strip along Acadia Avenue with “ecolawn” seed mixture, a low maintenance grass;
• Introduction of landscaped islands throughout the parking lot which will mitigate heat absorption; and
• Street tree planting along the site perimeter.

Appendix ‘A’ includes a commitment to the implementation of sustainable development practices in the site plan agreement as a condition of site plan endorsement (Appendix ‘A’).

Building design and landscaping

The unique design of the cathedral will provide a landmark built form in a prominent location. All exterior walls will be brick and light tan in colour. Most walls and some windows will be capped with tan coloured precast concrete. The west façade which serves as the main ceremonial entrance will feature oak wood doors with tall wood transoms above. The roof membrane will be a light tan colour to match the brick. Reflective or colour tinted glass will not be used due to the possible future introduction of stained glass. A coloured rendering is attached to this report.

The applicant has provided the Town with a landscape plan for review and approval. The landscape plan concentrates tree and shrub planting towards the front of the cathedral, along Steeles Avenue and around the west main plaza. A low decorative stone wall, shrub

planting and an urban plaza space all create a focal point at the south east corner of Steeles Avenue and Ferrier Street. Details must be provided on the proposed design approach for this open space area. The design must incorporate soft and hard landscaping and a well designed pedestrian connection to the cathedral. The proposed stormwater facility at this corner must be well integrated in the overall design scheme. Landscaped islands and tree planting are incorporated into the landscape plan.

The landscape plan does not reflect any treatment or tree planting along Acadia Avenue. Town staff have requested that additional tree planting be introduced along the entire perimeter of the site with enhanced landscaping around the open space at the north side of the building as this space will remain in the long term and represent an integral central open space area within the campus type development. Revisions to the landscape plan to the satisfaction of the Town and additional information on the proposed hard landscaping, signage, outdoor furniture and lighting must be provided as a condition of site plan endorsement (Appendix ‘A’).

Conclusion

Staff are of the opinion that the proposed site plan and building elevations are generally acceptable subject to further revisions identified in this report. The design of the cathedral represents a unique and attractive built form. The applicant has worked with staff to provide a more pedestrian-friendly environment with improved pedestrian connectivity and exterior open spaces and plazas which will create an appropriate development for the subject property with the high prominence which the St. Mark’s Coptic Church is seeking.

FINANCIAL CONSIDERATIONS AND TEMPLATE: (external link)

Not applicable.

HUMAN RESOURCES CONSIDERATIONS

Not applicable.

ALIGNMENT WITH STRATEGIC PRIORITIES:

The proposed development will incorporate a travel demand management strategy and implement sustainable development practices to assist in minimizing the impact of the development on the environment. The travel demand management strategy will promote transit usage. The proposed development introduces an urban plaza at the north east corner of Steeles Avenue and Ferrier Street which will create an attractive public space.

BUSINESS UNITS CONSULTED AND AFFECTED:

All Town departments and external agencies have been circulated with this application and all comments have been addressed and incorporated into the site plan.

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:

Figure 1- Location Map

Figure 2- Aerial Photo

Figure 3- Area Context/Zoning

Figure 4- Site Plan

Figure 5- Building Elevations

Figure 6- Master Concept Plan

Appendix ‘A’- Conditions of Site Plan Endorsement

AGENT/CONTACT INFORMATION

Paul Noskiewicz

Project Manager

Norr Limited Architects & Engineers

175 Bloor Street East

15^th Floor, North Tower

Toronto, ON, M4W 3R8

Tel: (416) 929-0200

Fax: (416) 929-3635

APPENDIX ‘A’- CONDITIONS OF SITE PLAN ENDORSEMENT

1. That the owner enters into a site plan agreement with the Town, containing all requirements of the Town, City of Toronto, TTC and other public agencies, including providing any financial securities and conveyances of land required;

2. That this endorsement shall lapse and site plan approval will not be issued, after a period of three years commencing June 17, 2008, in the event that the site plan agreement is not executed within that period of time;

3. That prior to approval of the site plan, the owner shall address any concerns identified by the Town, City of Toronto, TTC and any other external agencies resulting from a review of the Traffic Impact Study, Stormwater Management Report, Servicing Plans and other studies, or revise the studies accordingly, to the satisfaction of the Town and any other authorized public agencies;

4. That prior to approval of the site plan, the Owner shall submit final drawings, including but not limited to, site plan and elevation drawings, landscape plans, grading and servicing plans, and lighting plans that comply with all requirements of the Town, City of Toronto, TTC and any other authorized public agencies, to the satisfaction of the Town;

5. That the grading plans and engineering drawings be revised to show sidewalks along Ferrier Street and Acadia Avenue to Town standards, removal of burming in the Town’s right-of-way and any additional requirements by the Town and City of Toronto;

6. That the landscape plan be revised to incorporate additional tree planting along the perimeter of the entire site and around the open space on the north side of the Cathedral, to the satisfaction of the Town;

7. That the owner provide additional information on proposed hard and soft landscaping, signage, outdoor furniture and lighting, and details of the urban plaza at the north east corner of Steeles Avenue and Ferrier Street to the satisfaction of the Town;

8. That the owner covenant and agree in the site plan agreement to implement a travel demand management strategy to the satisfaction of the Town;

9. That the owner covenant and agree in the site plan agreement, to implement sustainable development practices to the satisfaction of the Town;

10. That prior to approval of the site plan, the owner provides a written submission and revised Traffic Impact Study outlining proposed alternative methods to address the parking shortfall to the satisfaction of the Town;

11. That prior to approval of the site plan, the owner submits a revised Traffic Impact Study and obtains Committee of Adjustment approval for any parking shortfall;

12. That the proposed Steeles Avenue access be approved by the City of Toronto in consultation with the TTC;

13. That the site plan be revised to show the impact of the driveway on existing on-street parking on Ferrier Street and removal of the dedicated right-turn lane; and

14. That the owner covenant and agree in the site plan agreement to pay all applicable charges including but not limited to development charges, cash-in-lieu of parkland and recoveries.