Report to: Development Services Committee Date of Meeting: October 7, 2008
SUBJECT: RECOMMENDATION REPORT
Yonge
Steeles Corridor Study,
Draft Final Report July 31, 2008
File MI 514
PREPARED BY: Ron
Blake, Development Manager
West District Team
RECOMMENDATION:
That the report entitled
“Recommendation Report: Yonge Steeles
Corridor Study, Draft Final Report July
31, 2008, File MI 514” be received;
That the draft final report prepared
by DuToit Allsop Hillier, entitled “Town of Markham Yonge + Steeles Corridor
Study, Draft Final Report July 31, 2008” (under separate cover) be endorsed as
the basis for Town-initiated amendments to the Markham Official Plan and the
Thornhill Secondary Plan;
That a public meeting be scheduled
to consider Town-initiated amendments to the Markham Official Plan and the
Thornhill Secondary Plan (PD 3-1) to implement the recommendations of the Yonge
Steeles Corridor Study;
That staff report back to
Development Services Committee with a draft Official Plan Amendment, to
implement the Yonge Steeles Corridor Study;
And that Staff be authorized and
directed to do all things necessary to give effect to this resolution.
EXECUTIVE SUMMARY:
The study area is bounded by Yonge
Street on the west, Dudley
Avenue on the east, Steeles
Avenue to the south and the Farmers’ Market
property, immediately south of Elgin Street
to the north. The block bounded by Dudley
Avenue, Highland Park, Willowdale
Avenue and Steeles Avenue
is also included in the study area. Uses
within and adjacent to the study area include low rise commercial uses fronting
Yonge Street, isolated pockets of medium and high rise apartment buildings,
industrial uses north and south of the CN rail line east of Yonge Street, and a
predominance of single detached residences in the interior of blocks east of
Yonge Street. Large format retail and
numerous car dealerships are located on the west side of Yonge
Street south of the CN rail line in the City of Vaughan. Centrepoint Mall is located on the southwest
corner of the Yonge Steeles intersection, in Toronto.
The Yonge Steeles Corridor Study was initiated in March
2007, in response to emerging Regional and Provincial planning policies, which
promote intensification along the Yonge Street corridor; new transit
initiatives, including the Yonge Street dedicated Transitway, which was in the
design phase at the time of study initiation, and the more recent Provincial
announcement of a Yonge Street subway extension from Finch to Highway 7; and also,
a major redevelopment and intensification application, at the north east corner
of Yonge Street and Doncaster (the Liberty application) which was submitted in
July 2006.
The Yonge Steeles Corridor Study process has included an
extensive public consultation program, consisting of a series of 4 Working
Group meetings (the Working Group is composed of approximately 15 area residents,
landowners and developers, who met periodically with the study team for more
in-depth review and discussion of study recommendations); 4 Public Open Houses
(the most recent on September 17 2008) and regular meetings with the Region and
adjoining local municipalities.
The Yonge Steeles Corridor Study was initiated with the
intention of fulfilling a number of key objectives for the area. These
include providing a gateway to Markham; encouraging mixed use infill
development; respecting and minimizing impacts on adjacent land-uses (e.g. low-density
residential communities); encouraging high quality parks and open spaces;
creating a great street environment; taking advantage of the planned transit
corridor system; and promoting Markham’s green (sustainability) agenda. These objectives
have played an important role in the study process and are reflected in the
final study recommendations.
More specifically, the Yonge Steeles
Corridor Study recommends:
§
An average density of 2.5 FSI on the
redevelopment blocks, plus an additional 1.0 FSI incentive for commercial/office
uses along the Yonge Street
frontage;
§
A requirement for commercial uses at grade along
the Yonge Street frontage (as well as the first block fronting Steeles Avenue
east of Yonge Street) within the southern section of the corridor between
Steeles Avenue and the CN Rail line, with a more predominantly residential
character north of the rail line (although at-grade commercial would be
permitted, it will not be required along Yonge Street in this area);
§
A “transition strategy” for the redevelopment
blocks between Yonge Street
and Dudley Avenue to reduce
potential impacts of new development on existing residential neighbourhoods
east of the corridor. Key elements of
this strategy include:
o
Limiting building heights through the use of an
“angular plane” that is lowest towards the low-rise neighbourhoods and
increases in height away from the existing low-rise neighbourhoods at a 1:2
ratio (i.e. 1 m of height for every 2 m of horizontal distance);
o
Achieving a minimum street wall height of 15
metres (approx. 3 to 4 storeys) and a maximum street wall height of 30 metres
(7-9 storeys), with taller point towers in accordance with the angular plane,
along the length of each block fronting Yonge Street;
o
Creating an integrated open space system
consisting of a linear park and pedestrian connections on the eastern edge of
the redevelopment blocks (adjacent to Dudley Avenue and the existing
residential neighbourhoods to the east) to serve as a buffer between the
redevelopment areas and the existing low rise residential area to the east; two
publicly-owned neighbourhood parks; and a variety of privately owned but
publicly accessible parkettes and squares;
§
The study also included a review of servicing
and transportation capacity in the surrounding area. Currently, both of these infrastructure
elements are close to, or at capacity, and will require significant upgrading
to accommodate redevelopment and intensification;
Based on the proposals contained
in this study, Town staff will prepare a detailed Official Plan Amendment and
implementation strategy for late in 2008.
It is important to note that
the City of Vaughan initiated a
similar review of the west side of the Yonge Street Corridor in early
2008. This study is ongoing, and Town
staff continue to work closely with Vaughan
to ensure compatibility between the two studies and implementing documents.
FINANCIAL CONSIDERATIONS:
Not applicable at this time.
Study Area and Surrounding Context
The study area includes the blocks
bounded by Yonge Street to
the west, Steeles Avenue to
the south, Dudley Avenue to
the east and one property south of the Farmer’s Market, which flanks onto Elgin
Street. In
addition, the study area also include the first block east of Dudley,
fronting onto Steeles Avenue.
(See Figure 1 – Study Area)
The study area is characterized by a mix of commercial and
residential uses. On the block east of Dudley,
fronting Steeles Avenue the
original single detached housing remains in place. The Block between Yonge and Dudley, also
fronting on Steeles, contains a gas station and an older, mid rise apartment
building.
North of the Yonge-Steeles intersection to Meadowview
Avenue, the east side of Yonge
Street is bordered by a mix of low rise retail and
highway commercial uses. Single detached residential properties are located
immediately to the east. Generally this
portion of the study area is characterized by small lot sizes and fragmented
ownership patterns.
North of Meadowview Avenue, two large properties
accommodating retail plazas are located north and south of the CN Rail
line. Industrial uses are located
immediately to the east fronting Doncaster and Glen
Cameron, on both sides of the CN line.
The Study Area north of Clark
Avenue is characterized by older mid-rise
apartment buildings. Generally, these
uses are well established and may have limited intensification or redevelopment
potential.
On the west side of Yonge
Street, in the City of Vaughan,
land uses include a mix of large commercial properties from Steeles
Avenue north to the CN Rail line. North of the CN rail line, higher density,
medium and high-rise buildings with at grade commercial uses fronting onto the Yonge
Street corridor.
South of Steeles Avenue, in the
City of Toronto, land use patterns
on the east side of Yonge Street
are similar to those in Markham. Centrepoint Mall, a regional shopping centre,
is located on the west side of Yonge Street.
Yonge Steeles Corridor Study initiated in response to a variety of
policy, development and transportation infrastructure initiatives
The Study was initiated in
response to a variety of recent planning, infrastructure, and development initiatives
within the Yonge Steeles area of Markham. These include:
§
Regional Official Plan Amendment 43, which
updates the Region’s policies for intensification within nodes and corridors;
§
The Provincial growth plan for the Greater
Golden Horseshoe, which promotes intensification within existing urban
boundaries;
§
York Region Transit’s plans for a dedicated
transit way along Yonge Street.
§
The more recent Provincial Government
announcement for funding of an extension of the Yonge subway line north to
Highway 7;
§
Ongoing sanitary, storm and water servicing
constraints in the older portion of the Thornhill Community west of Bayview
Avenue;
§
Submission in July 2006 (revised April 2008) of
applications for Official Plan and Zoning By-law Amendment to permit an intensive
mixed use development at the north east corner of Yonge Street and Doncaster
Avenue (the Liberty application). The original
application (July 2006) proposed two 39 storey apartment buildings along the
Yonge Street frontage, as well as a 10 storey office building and two 32 storey
apartment buildings along the Doncaster frontage, with low-rise retail
development at the north and east sides of the site. This proposal was revised in April 2008 to
consist of an office and hotel building of 20 storeys, two residential towers
on the Yonge Street frontage of 34 and 32 storeys and two additional
residential towers fronting Doncaster of 27 and 22 storeys, and approximately
208,500 square feet of retail space distributed in podiums at the base of the
residential and hotel/office buildings as well as in a stand-alone 1 and
2-storey retail building at the north east corner of the site. This level of intensification represented a
major departure from the current intensification policies of the Thornhill
Secondary Plan.
Study focuses on a new urban design vision for the Yonge Steeles
Corridor
The purpose of the study is to:
§
Identify a preferred redevelopment/intensification
scenario and land use plan;
§
Ensure a pedestrian and transit supportive
street level environment on Yonge Street
and Steeles Avenue;
§
Provide appropriate transition between
redevelopment sites and existing low density residential neighbourhoods;
§
Provide park, recreation and community services
suitable for the anticipated population in the redevelopment area;
§
Assess transportation and servicing
infrastructure and to determine required improvements to accommodate the
preferred scenario;
§
Establish appropriate phasing of development;
§
Prepare an implementation strategy, including
amendments to the Thornhill Secondary Plan and implementing zoning by-law.
Work Program
In November 2006, the Development
Services Committee endorsed the proposed work program for the Yonge Steeles
Corridor Study (See Appendix 1) and authorized staff to begin the consultant
selection process.
In February 2007, following a
Request for Proposal process, the Town selected the consulting team of Du Toit
Allsop Hillier; the Butler Group Consultants Inc.; Cansult Limited (a division
of UMA Engineering); and N.Barry Lyons Consulting to undertake the study.
In March 2007, the study was
initiated. The consulting team began
work on Phase 1: Background Data Collection and Review. Phase 1 was completed in May 2007 and the
first public open house was held on May
31, 2007.
Work then began on Phase 2: Land Use and Urban Design Plan and
Guidelines. A second public open house
was held on June 28, 2007,
at which time the consulting team presented conceptual urban design and
redevelopment options for the corridor and initiated public discussion of these
alternatives. In particular, this public
open house focused on examples of corridor intensification elsewhere in the
GTA, and the different ways that a sample target density of 2.5 FSI could be
achieved on the redevelopment blocks through different building height and
building coverage alternatives. Copies
of the consultants’ presentations from the open houses are available at: http://www.markham.ca/Markham/Departments/Planning/Studies/Studies_Yonge-Steeles.htm During the summer of 2007, staff held the
first meeting with the Yonge Steeles Working Group, a small group of
approximately 15 residents, commercial property owners and developers who had
indicated at the first two public open houses that they would be interested in
participating more closely in the study process. The material presented at the Working Group
meetings is also available for viewing at the web link above.
In September 2007, the consulting
team began work on the transportation, servicing and community services components
of the Phase 2 portion of the study.
Another series of public consultation meetings was held in late
September, with a working group meeting held on September 26 and a public open
house on October 3. The focus of these
meetings was to test the emerging Land Use and Urban Design Plan against
current and anticipated transportation and servicing infrastructure. This phase of the study also looked at Transportation
Demand Management strategies, such as reduced parking requirements in the
redevelopment blocks, as well as traffic calming and conceptual traffic
infiltration mitigation measures in the adjacent low rise residential
neighbourhood. Staff prepared an interim
report on the study in September 2007, and presented interim study recommendations
to Development Services Committee on November
27, 2007.
Staff’s original intention had
been to complete the study in the first quarter of 2008. However, in December 2007, the owners of the Liberty
site appealed their application to the Ontario Municipal Board. A pre-hearing conference was held on May 1, 2008. A second pre-hearing is scheduled for September 29, 2008. A final hearing date has not yet been
set.
In the Spring of 2008, Staff, with
the assistance of the Consulting team, focused on resolving the outstanding
issues associated with the Liberty
application. Liberty
submitted a revised development concept in April 2008, which addressed a number
of the outstanding issues. A detailed
review of the current status of the Liberty application, and staff’s
recommendations with regard to the revised application, is set out in a
separate report to Development Services Committee, entitled: “RECOMMENDATION
REPORT, Applications by 1691126 Ontario Inc. for Official Plan and Zoning
By-law Amendments to permit high density residential, retail and office
commercial uses at 7171 & 7161 Yonge Street, northeast corner of Yonge
Street and Meadowview Avenue, Thornhill, File Nos. OP 06 127138 & ZA 06
127273”, dated October 7, 2008.
In August 2008, the Consulting
team submitted the draft final study report.
The final round of public consultation, to review the study
recommendations, has now been completed, consisting of a meeting with Working
Group (August 27, 2008), a
presentation to Development Services Committee (September 9, 2008), and a final Public Open House
(September 17).
Inter municipal Consultation has also played a key role in the study
process
Since the study area borders the
Cities of Toronto and Vaughan, staff are very aware of the need for inter municipal
input and coordination throughout the study process. Early in 2007, before the study officially
began, Markham staff met with their
counterparts in these municipalities and the Region of York to advise them of
the upcoming study. Since then, staff
representatives from these municipalities have attended a series of four Steering
Committee meetings held through the course of the study, and have provided
regular input into the study process.
It is important to note that the
idea of a joint study with the City of Vaughan,
similar to the approach taken with the Thornhill Yonge Street Study was
considered early in 2007 but proved not to be feasible for the City of Vaughan
from both a scheduling and budgeting standpoint. However, Vaughan
is now undertaking a similar study for the west side of the Yonge Corridor,
which began earlier this year. Their
second public open house was scheduled on September 16, 2008, with a further public meeting on October 20, 2008.
Study Area subject to a number of jurisdictions and policy layers
The study area falls within the
jurisdiction of the Town of Markham Official Plan,
the Thornhill Secondary Plan, the Region of York Official Plan and a variety of
Provincial Plans and Policy Statements.
Provincial Policies and new planning initiatives: The recent Provincial Policy Statement
(2005), together with the Greenbelt Plan (February 2005) and the Places to Grow
plan (2006) will shape future municipal policy directions and growth in the
GTA. These documents are aimed at
maximizing growth opportunities within existing urban areas through infill development
and intensification. Higher order
transit corridors within urban areas are identified as key areas for
intensification and redevelopment.
York Region Official Plan: The York Region Official Plan establishes a
commitment to invest in transit infrastructure, including streetscape
enhancements within identified nodes and corridors. The Yonge Street
corridor is designated as a Regional corridor.
The Regional Plan supports mixed-use intensification along these
corridors. The Region refined its
transit supportive land use policies, density targets and urban design
performance standards through ROPA #43, adopted in December 2004.
Thornhill Secondary
Plan (OPA1): The lands fronting Yonge
Street south of the CN rail line are designated as
“Community Amenity Area.” Within this
designation, mixed use development consisting of retail at grade and
residential/commercial above is encouraged; densities are restricted to 1.5
FSI, with a potential for 2.0 FSI subject to supporting transportation and
infrastructure studies. South of
Meadowview, the eastern portions of the blocks to Dudley
are designated “High Density Residential II.”
North of the CN line, more moderate densities of 0.75 to 1.0
FSI are permitted within the Community Amenity Area designation fronting Yonge
Street (of which 0.3 FSI must be reserved for grade-related commercial); and
building height is generally limited to 4 storeys but may be increased through
rezoning in accordance with criteria set out in the Secondary Plan. The residential properties east of the Yonge
Street frontages are limited to Low Density
Housing and Low Density Housing Special (which provides for low-rise
non-residential development along the north side of Glen Cameron). The block fronting Steeles
Avenue, east of Dudley, is
also designated Low Density Housing with a Low Density Housing Special designation
along the Steeles Avenue
frontage.
Planned transit
improvements will transform the Yonge streetscape
York Region Transit Planning
staff had been working on a detailed design for a new dedicated bus transit way
along the Yonge Street Corridor at the time of study initiation. In May 2007, the Province announced plans to
fund a subway extension from Finch Avenue
to Highway 7. YRTP is now initiating
work on an EA Study for the subway extension.
YRTP anticipates new stations at Yonge and Steeles, Clark
Avenue, Royal Orchard, Langstaff and Richmond Hill
Centre. The construction of the subway
will provide transportation infrastructure to support significant
intensification along the Yonge Steeles Corridor.
A new vision for the Yonge Steeles Corridor
The Yonge Steeles Corridor Study
envisions Yonge Street transformed - from a somewhat non-descript traffic
artery into a vibrant, mixed-use main street with a balanced mix of
residential, retail and commercial redevelopment, and an extensive and
integrated system of open spaces, public squares and private gathering areas
(see Figure 2). The vision builds on the
corridor’s many strengths: its healthy residential neighbourhoods,
opportunities for mixed use intensification along Yonge
Street, and municipal, regional and provincial
planning and transit initiatives. Key
elements of the vision and land use recommendations set out in the study
include:
- Intensification and redevelopment in the study area
blocks. The study proposes an
average residential density of 2.5 FSI within the study area blocks, with
an additional commercial/office incentive of 1.0 FSI. along the Yonge
Street frontages. The objective is to encourage mixed use
development, and to provide opportunities for reverse commuting along the
Yonge Street Corridor.
§
A “transition strategy” for the redevelopment
blocks between Yonge Street
and Dudley Avenue to reduce
potential impacts of new development on existing residential neighbourhoods
east of the corridor. Key elements of
this strategy include:
o
Directing higher building heights to the western
(Yonge Street frontage) area of the redevelopment blocks through the use of an
“angular plane” that is lowest towards the low-rise neighbourhoods (located on
the east side of Dudley Avenue) and which increases in height with the distance
away from the existing low-rise area at a 1:2 ratio (i.e. 1 m of height for
every 2 m of horizontal distance) (See
Figure 3 – Angular Plane);
o
It is important to note that the study
recommends that building heights be governed by a 1:2 slope angular plane
rather than a 1:1 angular plane (i.e. 1 metre in height for 1 metre in
horizontal distance) that is used in many situations in the Greater Toronto
Area. The principle reason for adopting
a 1:2 angular plane is due to the 200 metre length of the proposed
redevelopment blocks between Dudley Avenue
and Yonge Street. Applying a 1:2 angular plane measured from
the established residential neighbourhood on the east side of Dudley
Avenue, buildings up to 100 metres (approximately
30 storeys) would be permitted along the Yonge Street
frontage and approximately 65 metre (20 storeys) in the middle of the blocks. However, adopting a 1:1 angular plane from
Dudley Avenue would allow up to 200 metre buildings (approximately 60 storeys) on
Yonge Street and 100 metre buildings (approximately 30 storeys) in the middle
of the blocks, which clearly would not serve as a meaningful maximum building
height in this area, nor would it result in building heights that are
compatible with the surrounding context.
o
Achieve a continuous, medium-rise building wall along
the perimeter of the redevelopment blocks, with taller point towers at the
Yonge frontage in accordance with the angular plane (See Figures 4 to 8 – Built
Form);
o
Buffering the eastern edge of the redevelopment
blocks (adjacent to Dudley Avenue and the existing residential neighbourhoods
to the east) with a north-south park system linking across the rail corridor
with a pedestrian bridge (See Figure 8 – Public Realm: Dudley
Avenue);
§
A requirement for at-grade commercial uses along
the Yonge Street frontages
and the Steeles Avenue
frontage between Yonge and Dudley, within the southern section of the corridor
between Steeles Avenue and
the CN Rail line. North of the CN line the
study proposes a more predominantly residential character and at-grade
commercial uses are not mandatory.
However, at-grade commercial would be permitted and buildings must be
designed with sufficient floor to ceiling heights on the ground floor to accommodate
retail and restaurant uses. (See Figure 9 – Street-related uses);
§
Provision of a generous public realm
incorporating street trees, landscaping, public seating areas etc. along Yonge
Street, Steeles Avenue, Dudley Avenue and the east-west streets;
§
Preserving and strengthening the existing
pattern of streets and blocks;
§
Balancing pedestrian and vehicular priorities;
§
Developing an integrated pedestrian circulation
network
- The study also included a review of servicing and
transportation capacity in the surrounding area. Currently, both of these infrastructure
elements are close to, or at capacity, and will require significant
upgrading to accommodate redevelopment and intensification;
An integrated Open Space system
The study recommends an
integrated public open space system, including three publicly-owned
neighbourhood parks; a variety of private open spaces, parkettes, courts and
squares within the redevelopment blocks; and a publicly-owned linear park
system on the west side of Dudley Avenue, which will also serve as a buffer
between the low density residential to the east and the core of the
redevelopment area to the west. In
addition the study recommends enhancement of the Yonge Street Boulevard through
redevelopment, including widening to accommodate street trees, seating areas,
and cafes.
Comprehensive design guidelines
The design guidelines set out in
the study promote high urban design standards for future redevelopment and
infill, in order to enhance the pedestrian and visual character of the corridor
and to implement the key urban design objectives set out in the study. The design guidelines address building
heights and massing; development densities; transitions to the existing low
density residential neighbourhoods; landscaping and public realm design;
parking, loading and access; building orientation and setbacks; preservation of
traditional street and block patterns; and developing an integrated public and
publicly-accessible open space system.
Phasing and Implementation Strategy
The Yonge Steeles Corridor Study
sets out a detailed Phasing and Implementation strategy. Key elements include:
- Adoption of a secondary plan amendment reflecting the
key policy recommendations of the study;
- The use of detailed holding provisions and H removal
policies (both in the comprehensive secondary plan amendment and in
site-specific zoning by-law amendments) to ensure that redevelopment is
appropriately phased and proceeds concurrently with the provision of key
transportation and servicing infrastructure improvements;
- A requirement for comprehensive block plans to
provide a context for coordinating incremental redevelopment applications
within redevelopment blocks;
- Amendments to the Zoning By-law to allow for mixed
use intensification and redevelopment along the corridor. Zoning amendments would likely occur at
the time of redevelopment or infill applications;
- The possible use of Section 37 bonusing to encourage
the provision of key community facilities (such as day nurseries,
community facilities) where appropriate.
The Town is currently undertaking a review of its Section 37
Official Plan Policies, as a separate study.
As a first step in the
implementation process, staff will be preparing a draft secondary plan
amendment, for later submission to Development Services Committee, based on the
land use and urban design recommendations set out in the study. Staff recommend that a public meeting be
scheduled to receive input from the public in the policies contained in the
draft Official Plan Amendment.
CONCLUSION:
The Yonge Steeles Corridor Study
sets out a comprehensive redevelopment strategy for the Yonge corridor, which
will enhance pedestrian amenity, preserve adjacent residential neighbourhoods,
and allow for significant intensification of key redevelopment blocks. Staff recommend that the study be received
and endorsed, and that staff be authorized to schedule a public meeting to
consider a draft Official Plan Amendment, in the fall.