Report to: Development Services Committee Report Date:
SUBJECT:
Height and Density Study Status Up-date and
Draft Built Form Guidelines
PREPARED BY: Richard Kendall, Manger of Development, Central District
Extension 6588
RECOMMENDATION:
That the Report titled “Markham Centre - Height and Density Study Status Up-date and Draft Built Form Guidelines” be received;
That Council endorse the draft built form guidelines contained in the report as the basis for future Markham Centre Urban Design Guidelines and built form criteria to be incorporated into the Markham Centre Secondary Plan (OPA 21);
That staff be directed to develop Markham Centre Urban Design Guidelines and refine the Markham Centre Secondary Plan’s height policies, including specific criteria relating to ‘landmark’ locations’ based on the discussions in this report;
That a statutory public meeting be held, following completion of a draft Secondary Plan Amendment to receive input on the policies;
That the future Urban Design
Guidelines and draft Secondary Plan Amendment also be reviewed by the Markham
Centre Advisory Group;
And that Staff be authorized and directed to do all things necessary to give effect to this resolution.
EXECUTIVE SUMMARY:
The Markham Centre vision is for
an intense, transit supportive, human-scale, pedestrian oriented, mixed-use urban
growth centre. Recent development
pressures and Provincial and Regional policy initiatives have resulted in a
number of issues relating to building heights within Markham Centre. As a result, in September, 2007, Council
authorized a review of the Markham Centre Secondary Plan. Urban Strategies was retained to assist staff
in developing built form guidelines for Markham Centre, including exploring the potential for taller buildings,
while maintaining the original vision.
A two day design
charette event was held in June, 2008 to assess the potential to add
tall buildings while remaining true to the original vision; and, to address where
and how tall buildings could be integrated into the plan. Since the design charette, Urban Strategies
have prepared draft built form guidelines relating to building height; the
street system; building base/podiums; floor plate size; separation distances
between buildings; landmark locations; and, slab versus point tower
buildings. This report outlines the
draft guidelines, and discusses next steps required to implement the Markham
Centre design vision.
PURPOSE:
The purpose of this report is to present Draft Built Form Guidelines for Markham Centre. These guidelines provide detailed design criteria related to taller buildings. The criteria are intended to define tall buildings that maintain the vision for Markham Centre as a pedestrian scale, mixed-use community, while addressing recent development pressures and policy initiatives. These guidelines would form, in part, the basis for amendments to the height policies in Markham Centre Secondary Plan.
BACKGROUND:
The Markham Centre Secondary Plan (OPA 21) was adopted by Council in August, 1994 and approved by the Ontario Municipal Board in July, 1997. The Plan establishes a policy framework for the creation of Markham Centre as an urban, mixed-use ‘Town Centre’ for Markham, based on a European model of human-scale, pedestrian-oriented buildings, generally 6 to 8 storeys in height. The plan does allow for additional height at key ‘landmark’ locations.
Since the adoption of the Secondary Plan over a decade ago, several comprehensive development applications have been advanced and a number of issues have been identified relating to building heights. As a result, in September, 2007, Council authorized a review of the Secondary Plan policies with respect to height policies, including specific design criteria relating to taller buildings at ‘landmark’ locations; Appendix ‘I’ – Central Area Statistics; and, land use and other schedules within the Plan, to reflect Precinct Plans, development approvals, identified school and park locations, and established road alignments. As part of this review, Council affirmed the original vision for Markham Centre as a human-scale, pedestrian-oriented, transit-supportive, major activity centre for the Town.
OPTIONS/ DISCUSSION:
The Markham Centre Secondary Plan (OPA
21) contains a series of provisions relating to height and quality of new buildings. The Community Amenity Area designations (General
and
Higher buildings may be permitted at key strategic ‘landmark’ locations generally up to 13 storeys, subject to Council being satisfied as to the quality of the design, and provided there is a proper gradation of height. Policies are also in place which allow for high-rise residential buildings to have an equivalent height to a 13 storey office building module, which would translate to 16 storey residential buildings.
The Secondary Plan also provides Council with the flexibility to allow for a building or buildings to exceed the general maximums as set out in the Plan, without amendment, provided the purpose and intent of the Secondary Plan are otherwise met. In consideration, Council must be satisfied with the quality of design. Consequently the need for built-form guidelines was identified to help ensure the desired quality of design to assist in accommodating the densities anticipated within Markham Centre.
Current Trends are Towards Taller Buildings
While the Secondary Plan (OPA 21) contains policies related to height, it contemplates that specific building heights will be established through the detailed Precinct Plan and zoning process. Development approvals to date have complied with the height policies of the Secondary Plan, with buildings up to the current maximum of 16 storeys occurring at identified ‘landmark’ locations. However more recent trends, as evidenced by development inquiries and preliminary proposals, reflect a general trend toward taller buildings within Markham Centre.
Applications by Lonsmount
Construction (now Times) propose a series of buildings up to 20 storeys along
the south side of Highway 7 at the intersection with
There is a need to review and up-date the height guidelines and criteria of the Secondary Plan to ensure that taller buildings are directed to appropriate locations. There is also a need to ensure that taller buildings are in point tower and not slab formats, and exhibit high quality urban design and architecture.
Height and Density Review is On-going
Work progresses on the overall
height and density review for Markham Centre, including the transportation
analysis. To assist staff in addressing
the height component of this review, the Town retained Urban Strategies to
assist in the development of built form guidelines and to facilitate a Design
Charrette to explore the potential for
buildings to exceed 8 storeys, while maintaining the purpose and intent of the
original vision for Markham Centre. A
two day design charette event was held in June, attended by noteworthy architects,
landscape architects and designers from across the GTA. The first day featured an overview
presentation and tour and the second day consisted of a day-long modeling
exercise and wrap-up.
The direction provided to the participants at the outset of the charette
was to consider two key questions:
- What
is the potential to add tall buildings to this plan while remaining true
to the original vision?
- Where
and how would you consider adding tall buildings?
Coming out of the discussions and work undertaken at the charette, Urban Strategies identified a number of design principles relating to taller buildings, which should form the basis for the design criteria to be incorporated into a future Secondary Plan Amendment. Urban Strategies presented the initial results of the Design Charette to Development Services Committee in September, 2008. Urban Strategies has also suggested that taller buildings in Markham Centre continue to be located at established ‘landmark’ locations identified in OPA 21, but consideration could be given to expanding the definition and range of sites that qualify as ‘landmark’ to include:
- Certain lands adjacent to the
- Certain lands along a portion of the Civic
Mall
- Unionville GO station lands
Since the September presentation to Development Services Committee, Urban Strategies have refined their recommendations for design guidelines particularly as they relate to:
- building
height
- the
street system
- building
base/podiums
- floor
plate size
- separation
distances between buildings
- landmark
locations
- slab
versus point towers
Particular consideration is required for slab buildings, which have a rectangular footprint or floorplate, consisting of a long corridor, with apartment units on each side and exit stairs at either end.
Because of Ontario Building Code regulations, most slabs have a length of about 60-80m, which is typically the length of a street block. Slab buildings are appropriate buildings as podium or perimeter block buildings, as they perform an urban design role of defining the edge of a street and containing the space of the street and public realm. However, above a height of about eight storeys, slab buildings cast a larger shadow that covers the entire street, blocks the skyview and creates a “canyon effect”, rather than a pedestrian friendly scale of buildings along the streetscape.
In contrast, point towers, generally have a square footprint
or floorplate, with units arranged around a central core that contains
elevators, stairs and other systems. General
floor plate guidelines for point tower buildings are about 750-800 square metres,
so that they appear to be to be slender and maintain sunlight to the street and
skyviews. The best point towers are in
the order of 800 square metres or less; at this size, the shadow of the
building passes quickly over a site, compared to that of a slab building. As point
tower buildings block out less of the skyview than a tall slab, they are most
effective along a street if they are situated on a podium building.
With this in mind, Urban Strategies has suggested the following principles form the basis for more detailed Urban Design Guidelines for Markham Centre (examples of which can be found in Appendix A):
- Achieve a smaller block grid system of public streets.
- Building heights for perimeter block and podium/base buildings to be a maximum of 6 storeys.
- Building heights for slab or stand alone buildings to be a maximum of 8 storeys. Definition, and stepping back of upper storeys – i.e. “base, middle and top”.
- All tall buildings above 8 storeys to be point towers (not slabs).
- All point towers should be located in a podium/base building.
- Maximum floor plate size for point tower buildings to be 750 to 800 square metres.
- Tower heights can be considered between 13 storeys and 18 to 22 storeys, with the tallest buildings to be in ‘landmark’ locations, as identified in the Secondary Plan, and conforming to a maximum detailed set of design guidelines to be developed through Urban Design Guidelines.
- Distance between towers should be a minimum 25 metres face to face above the 6th storey.
- Adjacent towers should not be of the same height (minimum 3 storey difference).
- Any towers over 22 storeys would constitute Markham Centre ‘landmarks’ and should be limited in number and considered only at the most significant ‘landmark’ or ‘icon’ locations. Potential opportunities should be further defined in conjunction with the Buttonville Airport Height Regulations and in consultation with Council, in the context of OPA 21 policies which allow for a building or buildings to exceed the general height permissions provided Council is satisfied with the quality of design.
Council endorsement of the above principles will assist staff
discussions with applicants on on-going development proposals until new Urban
Design Guidelines are incorporated into the Markham Centre Secondary Plan. Further refinement of these principles will
continue with Urban Strategies to more precisely prescribe landmark locations,
address issues of commercial versus residential heights, and the long-term
status of the Buttonville Airport Height Regulations. These principles will also be reviewed in the
context of the on-going Mobility Hub
Master Plan / Precinct Plan exercise and, the review of development
applications.
Next Steps Required
to Implement
A significant component of the design vision for Markham
Centre requires the creation of a human scale, pedestrian oriented, small block
pattern and associated public realm plan.
To facilitate achieving the desired block pattern and built form additional
studies are to be undertaken including Urban
Design Guidelines, Public Realm/Open Space Master Plan, and a Mobility Hub
Master Plan / Precinct Plan.
Urban Design Guidelines to be Finalized Early in 2009
Markham Centre
specific Urban Design Guidelines are recommended by Urban Strategies to further
define the form, nature and location of tall buildings, particularly in
‘Landmark Locations’. The guidelines
would assist in determining the relationship of tall buildings to existing
built form and the public realm, as well as provide direction to retaining a
comfortable pedestrian environment, including animation and access at grade
level, integral to achieving the vision for Markham Centre.
Specifically, the
guidelines would need to address the
Public Realm/Open Space Master Plan
The preliminary
design for the Central Amenity Feature/Park within the Remington Group’s project,
as well as the on-going design for the Civic Mall linear park, represent two
key components of the future public realm in Markham Centre. More work however, is required to ensure the
delivery of the balance of the public realm is of a character and quality
consistent with the expectations for Markham Centre. A Public Realm/Open Space Master Plan will
provide additional detail and guidance in integrating land uses with
transportation, streetscapes, parking and other infrastructure, and with parks
and open spaces. Another key piece of
the public realm in Markham Centre is the
A Public Realm/Open
Space Master Plan will build on the approved Markham Centre Greenlands Plan and
assist in designing connections between the valley and surrounding neighbourhoods,
and providing the appropriate interface between the two. A Public Realm/Open Space Master Plan is in
the
Mobility Hub Master Plan / Precinct Plan
The identification
of the Unionville GO Station as an Anchor Mobility Hub by Metrolix,
significantly increases the importance of this facility and precinct in the
Markham Centre context. The rail
corridor creates unique challenges in terms of linking the East Precinct lands
with the balance of Markham Centre, particularly given other transportation
initiatives and the proposed CSIO facility.
Defining the potential for this area now will better position the Town
to respond to the multitude of opportunities on these lands.
Staff have initiated
work on a Mobility Hub Master Plan and Precinct Plan up-date for the Unionville
GO Station and East Precinct lands, including adjacent lands within the east
end of the Remington Group’s plan.
Several meetings have occurred with the various transportation agencies
and a workshop was held with the agencies, representatives of CSIO and
landowners on
Design Review Panel
An important part of
ensuring quality design across the secondary plan area, beyond the specific
structural elements of a plan is the review of development applications. Architectural styles and building
details are critical to the success of Markham Centre, consequently it is necessary
to ensure that the highest possible quality of design and design review is
achieved. Urban Strategies has suggested that to fully realize the potential
of Markham Centre, and ensure that the highest design standards are met, the
Town should institute a Design Review
Panel for applications within Markham Centre.
The Design Review Panel
would consist of a number of design professionals (architects, landscape
architects and urban designers) who are expert in development best practices in
the GTA and strong advocates for excellence in architecture and urban design. This review process would augment the work of
Town staff and the Markham Centre Advisory which evaluates projects against the
Markham Centre Performance Measures Document relating to Greenlands, Green
Infrastructure, Transportation, Public Space and Built Form criteria. Staff will report further in the new year on
potential steps to constitute a Design Review Panel for development
applications within Markham Centre and the Town overall.
ENVIRONMENTAL CONSIDERATIONS:
Not applicable
ACCESSIBILITY CONSIDERATIONS:
Not applicable
ALIGMENT WITH STRATEGIC PRIORITIES:
The recommendations contained herein align with the Town’s strategic priority of Growth Management.
BUSINESS UNITS CONSULTED AND AFFECTED:
All Town Commissions are involved in the achievement of Markham Centre objectives.
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
APPENDIX A: Urban Design Criteria
Q:\Development\Planning\Teams\Markham
Centre\Coordinator\Height and Density\Draft Built Form Guidelines Report