Report to: Development Services Committee Date of Meeting: September 16, 2008

SUBJECT: Markham Centre East Precinct Plan and Mobility Hub Design

PREPARED BY: Richard Kendall, ext. 6588

RECOMMENDATION:

That the staff report dated September 16, 2008 titled “Markham Centre East Precinct and Mobility Hub Design” be received;

That Council authorizes staff to retain Urban Strategies, on a preferred supplier basis to undertake a conceptual design for the East Precinct Plan and prepare a Mobility Hub Concept Plan in consultation with interested agencies and affected land owners in the amount of $46,850.00;

And that a contingency amount of $4,685.00 exclusive of GST be established to cover any additional costs and that the Director of Planning and Urban Design be authorized to approve expenditure of this contingency amount up to the specified limit;

That a new 2008 Planning Capital Budget be established entitled “Markham Centre East Precinct and Mobility Hub Concept Plan” for a total amount of $51,535.00 to be funded from the Development Charges Reserve (90% / $46,381.50) and tax-funded Capital Contingency 44-6900-6395-005 (10% / $5,153.50);

And that IBI Group Ltd be retained on a preferred supplier basis for additional transportation analysis associated with the update of the Markham Centre Transportation Study and work associated with the revised East Precinct and Mobility Hub Concept Plan to a maximum of $114,400 (inclusive of $10,400 in contingencies).

And that the Engineering Department Capital Account 083-5350-8471-005 (Markham Centre Traffic Study Update) be increased by $ 59,128.00 and funded from the Development Charges Reserve.

That the tendering process for the above awards be waived in accordance with Purchasing By-Law 2004-341, Part 11, Section 7 (1) which states “When any of the following conditions apply, the Treasurer and the Manager of Purchasing may, in consultation with the appropriate Director, negotiate a contract for the supply of goods and services without a competitive process, which shall be submitted to the Chief Administrative Officer for approval...

That staff up-date Council following the Developer/Transportation Agency Roundtable Workshop scheduled for October to discuss the Mobility Hub Concept Plan;

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

EXECUTIVE SUMMARY / FINANCIAL CONSIDERATIONS:

More detailed planning and transportation studies are required for lands within Markham Centre’s East Precinct, in light of the current Metrolinx mobility hub initiative as well as the CSIO proposal. Additional funds are required to finalize the East Precinct Plan and to prepare a Mobility Hub Concept Plan in consultation with a broad group of stakeholders. Urban Strategies has been instrumental in assisting the Town with the preparation of the original draft Precinct Plan for the East Precinct and have led the recent design charette process for the height and density review for Markham Centre. Staff therefore recommends that Urban Strategies be retained to undertake the preparation of the East Precinct Plan and Mobility Hub Concept Plan on a preferred supplier basis in accordance to Purchasing Bylaw 2004-341 section 2 (7)1c, where the extension of an existing contract would prove more cost-effective or beneficial.

The Engineering Department has retained the IBI Consultant Group to initiate a Town Wide transportation review. In addition the Engineering Department is to initiate in 2008 an update of the Markham Centre Transportation Study to reflect recent planning and transportation initiatives. The transportation analysis needs to be expanded to address the specific requirements associated with the proposed mobility hub designation, incoming development applications as well as the CSIO proposal which is currently before council. In order to meet the time frame for the needed study it is recommended of IBI Group Ltd. and McCormick Rankin Ltd. as a sub-consultant be retained on a sole source basis to undertake this study. IBI Group Ltd. is undertaking the Markham Centre Transportation Study while McCormick Rankin Ltd. had completed the transportation study for East Precinct in 2004. It is anticipated that an additional $59,128.00 would be required to complete this additional analysis to be funded by Development Charges.

To this end additional funds are required to expand the scope of the transportation review for Markham Centre. Staff therefore recommends that a joint consulting team of IBI Group Ltd. and McCormick Rankin Ltd. be retained on a preferred supplier basis.

Full funding was not included in the 2008 Budget as this work was not contemplated at the time the 2008 capital budget was finalized. Staff is therefore seeking council authorization for the following:

1) To establish a new Planning Capital budget account for purpose of the Markham Centre East Precinct and Mobility Hub Concept Plan in the amount of $51,535.00

2) And that the above budget be funded from the Development Charges Reserve (90% / $46,381.50) and tax-funded Capital Contingency 44-6900-6395-005 (10% / $5,153.50) to be transferred into the newly established Planning Capital Account.

3) That the Engineering capital budget for Markham Centre Traffic Study Update (83-6395-8471-005) be increased by $59,128.00 to be funded from the Development Charges Reserve.

Financial Summary for Planning:

Award to Urban Strategies $46,850.00

Contingency (10%) $ 4,685.00

Total Budget Requested $51,535.00

Funded from DCA Reserve (90%) $46,381.50

Funded from Capital Contingency (10%) $ 5,153.50

Total Funding for new Planning Capital Account $51,535.00

Draft East Precinct Plan Prepared, but deferred

As outlined in the Markham Centre Secondary Plan (OPA 21), a Precinct is a smaller geographic area within a Planning District which is more suited to a detailed study of such matters as street, block and lot pattern; type, height and location of buildings; and, street sections (including right-of-way requirements) and views. 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.

Markham Centre’s East Precinct encompasses the lands east of the GO transit line, north of Highway 407, west of Kennedy Road and south of the Rouge River, and consists of approximately 46 ha. (114 acres). These lands, which are in multiple ownership, include the Unionville GO Station, Markham Family YMCA, the Bill Crothers High School and current development applications by the Rockport Group and the Markham Centre Development Corporation.

In February 2004, Urban Strategies was retained by the Town to prepare the Markham Centre East Precinct Plan, in order to provide a planning context to evaluate future development applications. A draft East Precinct Plan was presented to Council in January, 2006, however further processing of the Precinct Plan document was deferred pending resolution of land ownership issues and on-going discussions regarding the proposed Canadian Sports Institute of Ontario (CSIO) facility (including expanded GO parking facilities) and the emerging National Centre for Medical Device Development (NCMDD).

The Remington’s Group Precinct Plan Interfaces with the East Precinct

In July, 2003, Council approved the Precinct Plan for the lands west of the GO line, and granted initial draft plan approval to the Remington Group’s comprehensive, mixed-used project. This phased project implements many of the Town’s objectives for Markham Centre, including providing for the introduction of rapid transit through the centre; protecting and enhancing the Rouge River valley; creating a series of new public spaces and urban parks; and, providing for a variety of development parcels and mixed land use.

In July, 2004, the Markham Centre Zoning By-law (2004-196) was enacted to implement the Remington Precinct Plan and since then the applicant has finalized phase 1 site plan approvals with 7 apartment buildings under construction and the Honeywell office building now complete and occupied. The Phase 1 residential component of the Remington project occupies lands within the northwest quadrant of the 240 acre site, between Enterprise Boulevard and the future extension of Birchmount Road. Subsequent phases include the comprehensive retail core, between Birchmount Road and the major urban park; and, lands on the east site of the re-aligned tributary 4 (Figure 1).

The lands in the subsequent phases of development are immediately adjacent to the East Precinct (west side of the GO line) and are directly connected by the Enterprise Boulevard underpass. The preliminary design work that was undertaken with the CSIO proposal and, more recently, the Markham Centre design charette exercise, identified the opportunity to investigate additional road, transit and pedestrian connectivity between the Remington project and the East Precinct lands. Given the emerging mobility hub in this area; CSIO, pending development applications; and the importance to the long-term objectives of the Markham Centre Plan, it is important to ensure that the these two significant areas of Markham Centre work together and are strategically linked.

Markham Centre Height and Density Review is Underway

In September, 2007 Council considered a report which discussed and validated the original vision for Markham Centre for the creation of an urban, mixed-use ‘Town Centre’. The vision is based on a model of a human-scale, pedestrian-oriented buildings, generally 6 to 8 storeys in height, planned on a comprehensive basis and serving as a transit-supportive, major activity centre for the Town. This is a vision which is distinct from other emerging suburban centres which typically seek to intensify around established retail nodes.

The September 2007 report outlined the need for various technical amendments to the Markham Centre Secondary Plan to reflect the Precinct Plans and development applications approved by Council, respond to issues associated with the potential introduction of 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. Work is on-going on this review and, in support of establishing appropriate design guidelines, a design charette was hosted by the Town in June, 2008.

This charette brought together a number of leading architects and landscape architects from the across the GTA who have extensive experience in high profile, high-rise, mixed-use urban environments. The results of this charette process and the next steps in the height and density review were presented to the September 9, 2008 meeting of Development Services Committee.

Design Charette was held in June, 2008

The design charette process, facilitated by Urban Strategies, was intended to explore how buildings which exceed 8 storeys might be deployed to ensure appropriate massing, streetscape relationships and architectural design, consistent with the Markham Centre vision. Specific questions posed to the participants included:

What is the potential to add tall buildings to Markham Centre while remaining true to the original vision?
Where and how could you add these tall buildings?
What kind of block and city structure do you need to successfully support the deployment of buildings?
Where should tall buildings go?
Are there other ‘landmark’ locations to be considered and how should these locations be prescribed?

For the purpose of the charette exercise, Markham Centre was divided into three sub-areas, Highway 7, Centre West (Remington Core) and Centre East (East Precinct). Specific design responses were identified by the participants for each of these sub-areas. These design responses were then synthesized into four initiatives which are intended to build upon the Markham Centre Performance Measures Document and other existing policy framework to provide a more precise design direction for Markham Centre. As presented through the presentation on the design charette exercise at the September 9, 2008, Part A DSC meeting, these initiatives include the need for specific Markham Centre Design Guidelines; the creation of a Public Realm and Open Space Masterplan; a Mobility Hub/revised East Precinct-Remington Precinct Plan; and consideration of the establishment of a design review panel.

Mobility Hub Has Been Identified

The Unionville GO station, located within Markham Centre’s East Precinct has been identified as a future Mobility Hub within the Province’s Metrolinx Transportation Discussion Papers. The mobility hub designation anticipates a place of connectivity where different modes of movement come together in a seamless fashion. There is an expectation that such areas will accommodate an intensive concentration of employment, living, shopping and recreational experiences around a transit interchange. These expectations are quite consistent with the intense, mixed-use and transit-supportive community which is intended to be Markham Centre.

The Provincial Mobility Hub designation creates additional opportunity in Markham Centre for investment in transit and road infrastructure, the CSIO, NCMDD and additional redevelopment opportunities. There will be increased focus on the development of lands in the vicinity of the Hub, including lands on the west side of the GO line, within the Remington Group’s lands. In order to ensure that the development of this hub enhances the larger Markham Centre community building objectives, it is important to re-visit the draft East Precinct Plan and expand the scope of that work to also address the specific requirements of the Mobility Hub, the proposed NCMDD and CSIO facilities (including GO parking requirements) and the interface with the approved Remington Precinct Plan. The rail corridor currently acts as a separator and barrier to the integration of the mobility hub with the rest of Markham centre, and design opportunities to better link the two sides of the GO line are a major priority.

Transportation Initiatives Underway

There are a number of transportation initiatives underway that impact Markham Centre and specifically the Mobility Hub in the East Precinct. These include expansion of GO Transit service and parking requirements, MTO’s – 407 Transitway Environmental Assessment Study, VIVA’s Rapid Transit system, Feasibility Study for Millar Avenue extension to Kennedy Road and a Feasibility Study for road access from East Precinct to the future Millar Ave. Meetings between public agencies have been held over the past 3 months and will continue in order to finalize the transit, access and parking requirements.

Discussion:

Mobility Hub Concept Plan and Revised East Precinct Plan Required

Given the importance of the emerging mobility hub within the East Precinct and the other significant development opportunities in the area, the Town needs to be proactive in terms of understanding and responding to Metrolinx, GO Transit, MTO and VIVA initiatives, and further defining the potential for this area within the larger Markham Centre context.

The design of the mobility hub should give consideration to accommodating the various transit systems which will converge at this location and identify opportunities for the various transit systems (GO Transit, VIVA service and the 407 Transitway) to appropriately interface with each other. The design should also consider potential programming opportunities previously identified as part of the NCMDD and CSIO proposals and possibly include grade-related retail and an office/employment component. As noted, the hub will have potential impacts on lands outside of the East Precinct and should be considered in conjunction with the approved Remington Plan.

Staff is in the process of arranging a developer and transportation agency roundtable workshop for October 17, 2008 to review issues and opportunities associated with the proposed mobility hub. The main objectives of this roundtable are to:

Up-date attendees on the results of the Markham Centre Design Charette
Discuss the emerging mobility hub policies and their implications on Markham Centre
Review opportunities to align the mobility hub with other opportunities in Markham Centre, and
Confirm potential and scope of work for a Mobility Hub Concept Plan.
Update attendees on the transit agencies requirements in the area

Participants in the roundtable workshop will include key stakeholders including senior Town staff from across a number of departments, representatives from the affected landowners and from the various transportation agencies such as GO Transit, VIVA, York Region, Ministry of Transportation and Metrolinx.

In order to better assess the impacts, define and articulate the Town’s vision for these lands, the East Precinct plan should be up-dated and considered comprehensively as part of the planning for the mobility hub, the proposed NCMDD and CSIO facilities, the expanded GO parking structure proposal, and with regard to the easterly lands within the Remington Group’s Precinct Plan.

In order to proceed with more detailed planning and transportation studies associated with lands within Markham Centre and the East Precinct, additional funds are required to prepare a Mobility Hub Concept Plan. Urban Strategies has been instrumental in assisting the Town with the preparation of the original Precinct Plan for the East Precinct and have led the charette process for the height and density review for Markham Centre. Given the interrelationships and overlap of issues staff feel that Urban Strategies should also be retained (as a preferred supplier) to undertake the preparation of the Mobility Hub Concept Plan.

The development of a Mobility Hub Concept Plan which addresses these elements was not contemplated as part of the 2008 budget process and is unfunded. It is estimated that approximately $51,535.00 would be required to undertake this review, including additional modeling similar to that done as part of the design charette.

CSIO Project Development Work Continues

In June of 2007 Council agreed to support the development of the Canadian Sports Institute Ontario in Markham Centre and recently the Town of Markham has become involved in a bid by the Toronto and the Greater Golden Horseshoe to host the 2015 Pan Am Games. The development of CSIO will have implications on the development of Markham Centre and the East Precinct in particular. There will be issues involving land availability and use, CSIO preliminary site layout and facility fit integration with adjacent uses, transportation, parking and transit issues.

Staff of the Community Services Commission will be closely involved in on-going Markham Centre work to ensure issues and priorities are aligned throughout the process. Community Services is considering retaining the firm of Bregman + Hamann Architects (which participated in the design concept and visioning exercise in 2007) to continue to advance the site layout and facility fit exercise. The work of Bregman + Hamann will provide input to Development Services staff the Mobility Hub and East Precinct Plan work. A report from Community Services Staff will be presented to General Committee shortly.

Markham Centre Transportation Up-date is Underway

As part of the larger growth management strategy work, the Engineering Department has initiated a Town Wide transportation review. Integral to that review is a more detailed analysis of specific growth opportunities within the Town including the Langstaff area and Markham Centre. The Engineering Department had budgeted in 2008 to update the Markham Centre Transportation Study. The mobility hub and CSIO proposal however, create additional challenges, requiring additional analysis, with a specific view as to access and parking requirements and potential opportunities to integrate additional crossings of the GO line and Highway 407 to connect to the various precincts within Markham Centre. This additional analysis was not included in the anticipated scope of work for Markham Centre or the 2008 budget amount.

In order to properly assess the impacts and opportunities of creating additional rail/407 crossings and introducing a finer road network through this area, the transportation analysis needs to be expanded to address the specific requirements associated with the proposed mobility hub designation as well as the CSIO proposal which is currently before council. To this end additional funds are required to expand the scope of the transportation review for Markham Centre. Presently $69,000.00 has been allocated for the Markham Centre component of the transportation review within the 2008 Budget, Account # 083-5350-8471-005. In order to meet the time frame for the needed study it is recommended that IBI Group Ltd. with McCormick Rankin Ltd. as a sub-consultant be retained on a sole source basis to undertake this study. IBI Group Ltd. is undertaking the Markham Centre Transportation Study while McCormick Rankin Ltd. had completed the transportation study for East Precinct in 2004. It is anticipated that an additional $59,128.00 would be required to complete this additional analysis to be funded by Development Charges.