1. The policy context for growth management has been established by the
Province; growth in York
Region and Markham must conform to this context
1.1 Province
of Ontario
To a much greater extent than Markham’s previous growth management
exercises, the context for Markham’s current development of a Growth
Management Strategy is set in Provincial legislation and policy, and the
response to be made by the Region of York to the Provincial policy. The Committee
is familiar with Provincial policy initiatives that establish the requirements
and controls for managing growth within York Region and the Town. The
Provincial controls continue to evolve, and together with the Region’s required
conformity exercise, guide and frame municipal response to the Growth Plan.
Within this more defined policy context, the Region and Town have continued to
work closely to develop what is regarded as a reasonable and consistent policy
response.
Key Provincial initiatives shaping the Region’s and Town’s response to
managing growth include:
·
Places
to Grow Act
·
Growth
Plan for the Greater Golden Horseshoe
o
Growth
Forecasts
o
Intensification
and Density Targets
o
Built
Boundary Delineation
o
Urban
Growth Centre Policies
o
Strategic
Employment Lands Policies
·
Greenbelt Act and Greenbelt Plan
·
Metrolinx
Regional Transportation Plan, and related legislation.
1.2 Region of York
The Committee has received regular
updates from the Region of York regarding their work on developing a response
to Provincial growth policy. The Mayor and Regional Councillors have been
directly involved in Regional decisions on future growth policy for the Region.
On September
9th 2008, the Committee received a presentation from Regional Staff describing
the preferred growth scenario identified by Regional Council. This scenario
sets the details for the quantum of growth that the Town will need to plan for
and manage and some of the emerging parameters governing our response. Some of
the key Regional work includes:
·
Region
growth management initiative, “Planning for Tomorrow”
o
Area
Municipal Growth Assignments
o
Transportation
Management Plan
o
Regional
Infrastructure & Services Master Plan
o
Regional
Natural Heritage System
o
Human
Services Plan
o
Community
and Fiscal Sustainability
·
Regional
Official Plan
On January 7 2009, the Region’s Planning and Economic
Development Committee recommended that the growth forecasts for York and its
local municipalities arising from the Planning for Tomorrow exercise be
incorporated into the Regional Official Plan. A presentation on the forecasts
was received by the Development Services Committee on January
20 2009. It
is intended that the forecasts should be used by the Region and the local
municipalities as the basis for ensuring conformity with the Provincial Growth
Plan and for long term land use, infrastructure and financial planning.
1.3 Town of Markham
At the Town, the context for a Growth Management Strategy (GMS) was
established by Council in March of 2008 through confirmation of the strategic
areas of focus of “Building Markham’s
Future Together” (BMFT) and the Action Plans to implement this
initiative. Building Markham’s Future Together Strategic Areas
of Focus, include:
1. Growth Management
2. Transportation/Transit
3. Environment
4. Municipal Services
5. Parks, Recreation, Culture &
Library Master Plan/Public Safety
6.
Diversity
A number of Town studies are underway or planned, that will contribute
to the development of the GMS. Some of these studies/initiatives fall under the
umbrella of a Building Markham’s Future
Together (BMFT) area of focus other than Growth Management, but relate
to, or inform decisions relating to growth. These studies/initiatives include:
·
Environmental
Policy Review: Natural Heritage Network (BMFT -Environment)
·
Intensification
Analysis
·
Growth
Forecasts Analysis and Growth Opportunities
·
Employment
Lands Strategy
·
Agricultural
Analysis
·
GMS
Public Engagement Program
·
Sustainable
Development Guidelines (BMFT -
Environment)
·
Intensification
Guidelines
·
Urban
Growth Centre and Key Development Area Studies
·
Strategic
Transportation Plan (BMFT – Transportation)
·
Master
Servicing Study
·
Community
Sustainability Plan (Green Print) (BMFT – Environment)
·
Financial
Analysis
·
Parks,
Recreation, Culture and Library Master Plan (BMFT – Municipal Services)
·
Economic
Development Strategy
2. Community priorities relating
to growth are already being
identified
Through “Click with Markham”
linked to “Building Markham’s Future Together”, the Environics Residents
Surveys and Markham residents’ responses to the Region’s “Planning for
Tomorrow” growth management program it is possible to begin identifying public
priorities relating to growth in Markham.
The summary below, provides an initial insight into current public priorities
relating to growth:
·
address
traffic congestion; improve transportation network, transit system;
·
maintain/improve
community infrastructure, enhance delivery of services to match pace of growth;
·
develop
a financial strategy to sustain balanced growth, community infrastructure,
transit and environment funding;
·
intensification
is inevitable, but identify appropriate locations and built form suitable to
the context; some concern with height and density of residential development,
and the need to respect existing neighbourhoods remains;
·
increase
protection for natural areas; and
·
ensure
that the Green Print addresses more than the natural environment; it should also
outline sustainable programs for “going green”.
There is broad acceptance
of Markham as a growing community, and despite a range of opinion, there appears to be a collective expression of public priority
that there needs to be a “long
term vision for community growth”.
However, to back up this vision for growth, the community wants to know
how it will be delivered, and through the implementation of the vision, how the
current concerns or priorities regarding growth will be addressed. The concerns
and priorities are reflected in the feedback on infrastructure, environment,
sustainable operations, good development and perhaps most important, a
financial strategy that sustains the delivery of the improvements and services
that the community expects, in the context of continuing growth. There will be
further opportunity to hear from the public through the Public Engagement
Program for the Growth Management Strategy and consultation through other Town
initiatives.
3. Parameters for a Markham Growth Management Strategy
Based on comments and directions to date from the Development Services Committee,
the directions established in “Building
Markham’s Future Together” and
the review of public priorities, all considered within the policy
context established by senior governments, staff has identified parameters for
developing a Growth Management Strategy for Markham. These include:
·
define,
protect and enhance a Natural Heritage Network;
·
preserve
housing in established residential areas; avoid intrusive intensification;
·
direct
intensification to priority locations served by rapid transit in Regional
Corridors and focus on Urban Growth Centres and Key Development Areas;
·
examine
40% and 60% residential intensification alternatives (ie. higher density
residential development within the Built Boundary defined by the Province,
combined with compact urban form within the undeveloped portions of the Town’s
Current Settlement Area (CSA), limiting extension of the CSA);
·
ensure
built form and community design that is appropriate to the context, transit
supportive and sustainable;
·
preserve
established employment areas; assess opportunities for intensification;
·
maintain
Markham’s economic sustainability and
competitiveness;
·
identify
infrastructure needs, delivery, phasing and funding requirements and address
the pace of growth; and
·
identify
opportunities and requirements to accommodate growth within and beyond the
Current Settlement Area.
4. The Region of York
has prepared 25 year growth forecasts to 2031 for Markham
The current forecasts for the Town, included in the Regional Official
Plan, extend only to 2026; these are for a population of 348000 and an
employment of 212000. The current Plan also recognises that there is a need to
identify additional urban land in Markham to accommodate the 2026 forecast
growth. Extrapolating the 2026 population forecast to 2031 would have meant an
estimated 2031 population for the Town of 370000.
Markham’s Official Plan (Revised 1987) was
last reviewed in terms of forecast Town growth in the mid 80’s and is currently
based on a planning horizon extending to 2011. Major amendments to the Plan to
accommodate the forecast growth were subsequently adopted in the late 80’s and
early 90’s.
The proposed forecast growth for Markham
is summarized in Figure 1. These
forecasts have been prepared by the Region of York under authority of the
Provincial Growth Plan and the Regional Official Plan (ROP) and approved by
Regional Council for incorporation into the ROP. The Growth Plan assigns
forecast growth to the Region, which in turn is responsible for assigning
growth to the area municipalities. The 2031 forecast population for Markham increases to 423500. The proposed forecast
growth represents approximately 2500 households, 6000 persons and 4100
employees per annum over the 25 year forecast period to 2031.
4.1 Proposed Markham population growth to 2031
represents modest increase in growth currently planned
Comparing the current and proposed population forecasts is useful in
assessing the overall change contemplated for Markham. The forecast values in Figure 2 show
an overall population increase of 53500 in 2031, the difference between the 2031
forecast of 370000, based on the current
Regional Official Plan (ROP), and the forecast of 423500, proposed by the
Region to address the higher growth assignment established by the Province for
York Region in the Growth Plan. It is important to recognise however, that over
one-third of the increase of 53500 is accounted for in the substantial growth
in Markham that already took place prior to
2006. This growth raised the 2006 population value currently included in the
ROP from 253000 to a new 2006 population of 272500.
Consequently, the difference between the population growth of 151000
over the period from 2006 to 2031 in proposed Region forecast, adds only 34000
more new residents to the current Regional Official Plan forecast growth of
117000 for the same period. Recognising Markham’s significant contribution to York
Region’s overall growth to date, and the reliance on municipalities in southern
York Region to accommodate forecast growth, a Town population increase of 34000 over that already contemplated, is
fairly modest over a period of 25 years. The overall change in Markham’s forecast 2031 population
increases the Town’s share of the total forecast 2031 Regional population by
1%.
4.2 Recent and proposed growth trends
Figure 3 graphs the growth in population and employment over the period
from 1991 to 2031, and compares the overall rates of growth for two time
periods before and after 2006. Population increased by 77% in the 15 years
before 2006 and is forecast to increase by 55% over the succeeding 25 years from
2006 to 2031. Employment increased by 57% in the period preceding 2006, but is
forecast to increase by 72% within the period from 2006 to 2031. For both population and employment, the average annual increase is lower
over the 25 year forecast period from 2006 to 2031 than in the preceding 15
years.
Figure 4 compares the
average rates of growth in each five year period from 1991 to 2031 for
population, employment and households. It indicates that the Town has already
experienced, in the period before 2006, or is presently experiencing, greater
rates of growth than it is forecast to experience over the period to 2031. It
also demonstrates an assumed decline in the rates of growth over the forecast
period, as provided for in the Regional forecasts.
5. Growth is expected to be accommodated in several locations in Markham
5.1 Settlement Area Evolution
As a growth municipality, Markham has revised its urban settlement
area several times. Figure 5 shows the extent and pattern of change that has
occurred in the period since the revision of the Official Plan, 20 years ago,
in 1987.
The area in light gray shows the urban settlement area as it was at the
time of the comprehensive revision of the Official Plan in 1987. The dark grey
area is the Parkway Belt West Planning Area. The lands in green were added
first, at approximately the same time as the adoption of the Revised Official Plan.
A comprehensive study undertaken in the early 1990’s resulted in the
addition of the lands in pink via the approval of OPA No. 5 in 1995. This
amendment combined external expansion and internal enlargement of the urban settlement
area to permit the development of Markham Centre, South Unionville and Galleria. New communities from
Cathedral in the west to Box Grove in the east were added adjoining the pre-existing
settlement area. Finally, the lands in blue were incorporated in 2003.
Previous additions to the settlement area reflect a pattern of adjacent compact
extensions, combined with centralised infill. The result has been a very
controlled settlement area extension, relying on, and extending as needed, existing
services. Concurrently, this approach retained a large contiguous rural area
north and east of the settlement area. The
approach to distributing growth already employed by Markham is generally
consistent with policies established by the
Provincial Greenbelt and Growth Plans.
5.2 Looking to the Future to Accommodate Growth
Provincial policy, through the Greenbelt Plan and Growth Plan creates
several geographic policy areas that relate to accommodating future growth (Figure
6). These include, the Current Settlement Area (CSA), shown in blue, the lands
in the Provincial Greenbelt shown in green, and the remaining lands (the “Whitebelt”),
shown in yellow, being those lands not included in either the CSA or the
Greenbelt. The bar chart shows the approximate share of each of these three
principal areas of the total land in Markham.
Within the Current Settlement Area (CSA) the Province has defined the
Built Boundary, shown in red. Within the Built Boundary, is the portion of the
CSA where future intensification will be measured to contribute to the minimum
target of 40% residential intensification in York Region required by the Growth
Plan and measured during the period from 2015 to 2031.
Outside the Built Boundary, but still within the CSA (primarily within
the still- developing portions of OPA No. 5), is the area of land where
additional compact greenfield development is already planned, and
in many locations, where construction is proceeding. In this area, the
Provincial Growth Plan establishes a minimum development density of 50 persons
and jobs, per gross hectare. This density has been met or exceeded in many
newly developed greenfield areas in Markham.
The Provincial Greenbelt, as defined by the Greenbelt Plan, is not
intended to accommodate urban growth. The designated Greenbelt accounts for 24% of the total land
area of the Town. Current estimates suggest that additional lands, to be
identified for environmental protection through the delineation of the Town’s
proposed Greenway System, might increase the proportion of lands reserved for
the System to approximately 28% of the lands outside the CSA.
The “Whitebelt” is the area outside the Current Settlement Area (CSA),
not included in the Provincial Greenbelt, and is the only area, established
under Provincial policy, into which the CSA might be extended. The Growth Plan contemplates
the potential for urban development on Whitebelt lands, and contains policies
governing this potentiality.
The Whitebelt lands in Markham comprise one of the three
significant Whitebelt locations, established through Provincial policy, within
York Region. These areas have been located within the Region in order to
protect more sensitive natural features in the provincially defined Greenbelt, including the Oak Ridges Moraine
and Rouge Park. The other significant areas of Whitebelt
land within York Region are located in the City of Vaughan and the Town of East Gwillimbury.
Any extension of the Town’s Current Settlement Area on to lands in the
Whitebelt, would be subject to the protection and enhancement of localised
natural features and lands within the Town’s Greenway System, being determined
through the Town’s Environmental Policy Review. The Whitebelt is estimated to
represent about 16% of the land area of the Town.
Provincial growth policy, implemented by the policies being developed by
the Region, contemplate limits on the amount of forecast growth that might
reasonably be expected to be marketed within an existing municipal urban settlement
area, taking into account the estimated remaining greenfield potential and the
potential for intensification. In considering
alternatives for growth, the essential choice in locating growth to meet
planning objectives relates to the proportion of growth assigned to the Current
Settlement Area, including intensification, and the proportion that might be
assigned to an extended settlement area. The objective of Town Council and staff is to pursue appropriate
intensification and compact urban form, limiting the expansion of the Current
Settlement Area to the extent practicable.
5.3 Accommodating Growth Within the Current
Settlement Area
A presentation to the Development Services Committee in April 2008
described the approach and method being used to address the potential for
intensification in Markham. This work responds to Council’s
direction of November 2007 to examine whether the Town could accommodate up to
60% of the growth in residential units after 2015, within the built boundary,
inside the Current Settlement Area, as compared to the minimum of 40%
identified as the target for York Region in the Growth Plan, or compared to the
target of approximately 52% set for Markham by the Region in its preferred
growth scenario. The work also looks at the possibility of employment
intensification.
Staff also arranged meetings with Members of Councillors, to discuss the approach and
obtain specific comments in regard to issues with intensification. One of the
outcomes of these discussions has been the initiation of a study to determine
the application of the provisions of Section 37 of the Planning Act in regard
to density and height bonusing. This study is currently underway and will be
the subject of future reports. Recognising that the built form for
intensification will be important to acceptance in the community, a separate study
dealing with Design Guidelines for Intensification is underway, to address
built form issues such as those identified in comments from residents and
Councillors.
The approach to addressing intensification takes account of the
hierarchy of locations identified by the Region relative to urban structure and
to the transit planning currently underway by Metrolinx and the Region. Figure
7 displays several areas where intensification is being examined (shown in
purple), primarily relative to higher order transit routes serving the Urban
Growth Centres and in the Regional Corridors (shown in red) and to existing
rail lines (shown in black). Several GO stations already exist; other potential
locations for stations will be examined through the Markham Transportation Strategic
Plan.
It is important to recognize that only certain
locations within an area being examined may be identified for intensification,
rather than the entire area. Specific studies have, or will, be undertaken for all areas identified
for intensification to determine the appropriate amount and location of change
and additional development. These area studies and resulting plans will
determine the final population and employment targets and appropriate development
potential. As well, specific area built form and design guidelines can be
expected, ensuring that new development will be appropriate to the context in
which it is located.
It is also important to note that the areas not identified for residential
intensification represent established residential and employment areas to be
protected. Residential intensification
is not regarded as necessary or desirable in these areas.
In addition to intensification there are those lands within the Current Settlement
Area approved for greenfield development. Much of this land is
already planned for residential use and some has development approval in place.
Significant change in the plans for these lands is not assumed.
5.4 Accommodating Growth Beyond the Current
Settlement Area
Among the factors to be considered if accommodating growth beyond the Current
Settlement Area are the following:
·
Provincial
Greenbelt policies,
·
Regional
planning policies,
·
Markham’s Natural Heritage Network and
small streams policies,
·
existing
uses, such as hamlets, golf courses, cemeteries,
·
transportation/servicing
corridors,
·
findings
from Growth Management Strategy studies,
·
Federal
and Provincial orders, regulations and guidelines relating to the Pickering,
Airport Site, and,
·
future
infrastructure requirements.
On November 4th 2008 the Development Services Committee
received draft recommendations for a proposed Greenway System for Markham, which includes lands comprising
the Natural Heritage Network. Determination of possible lands for an extended
Settlement Area would exclude lands in the Greenway System. Recognising that
Provincial and municipal policies will combine to define a broader Natural
Heritage Network outside the Current Settlement Area (CSA) it is important to be
aware that the net land potentially available for development outside the CSA
is expected to be considerably less on a concession by concession basis than
was previously available inside the CSA, most recently in the area included in
OPA No. 5.
This circumstance reflects the assignment of lands to the Provincial
Greenbelt, lands identified for the Town’s Natural Heritage Network and that
some lands (eg cemeteries, golf courses) that are assumed to not be available
for development. It is estimated that on
average, only about one half the area of each (400ha) concession block might
be available for development.
6. A preferred alternative to accommodate housing growth is emerging
6.1 Additional Forecast Housing Stock
Figure 8 distributes the Region’s forecast increase of 62000 dwelling
units over the 25 year forecast period by unit type. The first two columns
compare the share of the housing stock by unit type in 2006 and 2031. As the
percentages indicate, the share of townhouse and apartment units in the stock
is forecast to increase whereas the share of single detached units will
decrease. This shift is consistent with the requirement for intensification.
The third column shows the contribution of each unit type to the overall
increase in units. Over the forecast period the share of additional ground
related units (single detached, semi-detached and townhouses) will exceed the
share of apartments, maintaining diversity in the 2031 housing stock.
The shift inherent in the forecast housing
stock is consistent with the requirement for intensification, although it represents
a significant departure from past market preferences and market performance in Markham. The
pursuit of a future housing stock alternative that represents a very different
direction in residential growth will present challenges. It will therefore, be
important to monitor the performance of the housing market, relative to the
policy direction chosen, and to provide for appropriate adjustments, as
needed.
6.2 Residential Intensification Target Influences
Choice of Residential Growth Alternative
The Committee is familiar with the Growth Plan requirement that a
minimum of 40% of all new residential development in York Region, built after
2015, shall be located within the Provincially defined Built Boundary (see
Figure 6), within the Current Settlement Area. Regional staff has explained the
effect of this requirement on the forecast regional housing stock and that to
satisfy this requirement, intensification is differentially distributed across
the area municipalities in the Region.
To meet the Region’s intensification target, nearly 70% of the Region’s potential
“intensification units” are located in the southern three municipalities in York. The share of intensification in
these municipalities offsets the reduced potential for intensification in the
remaining six area municipalities, in order to achieve the overall average Regional
intensification target of a minimum of 40%.
The estimated portion of the units added in Markham between 2015 and
2031 that will contribute to achieving the Region’s intensification target
represents approximately 52% of all units forecast to be added in Markham in
that period. This compares to the values of 40% and 60% that Council directed
staff to examine in November, 2007.
In response to Council’s direction, Staff has prepared housing stock
alternatives representing 40% and 60% intensification, and a further 55% intensification
alternative that is close to the Region’s preferred alternative. The
alternatives demonstrate the anticipated variations in the housing stock
depending on the intensification assumed.
6.3 Comparing the Housing Stock Alternatives
The bar chart in Figure 9 compares estimates of the additional housing stock that would be added between 2006 and
2031 for four residential intensification alternatives. Each housing stock alternative is comprised
of three contributing components:
·
housing located on remaining greenfield lands within the
Current Settlement Area;
·
housing from intensification within the
Current Settlement Area; and
·
housing located in an extended Settlement
Area.
The estimate of total housing on greenfield lands is based on current
development approvals and is treated as a constant. Most of this housing is
well-advanced in terms of development approvals. Based on the Town’s policies
guiding these approvals, it also represents compact development, and frequently
meets or exceeds the density targets established by the Province in the Growth
Plan.
The housing from intensification
varies based on the 40% and 60% alternatives authorized by Council (Alternatives
1 and 3, respectively), the Region’s proposal for Markham, which represents 52%
(Region of York Preferred Alternative), and Alternative 2, a 55% intensification
alternative, similar to the Region’s, but incorporating an adjusted mix of
ground-related units, reflecting the mix of the ground-related housing stock in
Markham today. The total housing that might be accommodated in an extended
Settlement Area varies relative to the number of units generated through the
proportion of intensification assumed in each alternative.
The percentages on each section of the bars in Figure 9 compare the
proportion of unit types in each alternative – singles, semis, townhouses and
apartments. For example, Alternative 1 contains 33% single detached and 36%
apartments compared to Alternative 3 which contains 24% single detached and 51%
apartments.
The total units in each alternative represent the number of units needed
to achieve the forecast 2031 population for Markham. The target population is
determined by applying persons-per-unit values to each unit type to calculate
the population estimate. As the intensification percentage increases in the
alternatives, the share of apartment units added also increases. Consequently,
the total number of units must also increase in order to achieve the population
target, to compensate for the increased share of apartment units that deliver less
population because of their lower person-per-unit values.
In terms of dwelling type shares, Alternative 2 (55% intensification) is
close to the Region’s, while Alternative 1 (40%) has a higher representation of
ground-related units contributed from greater reliance on lands in the Whitebelt,
and Alternative 3 (60%) has the largest share of apartment units located within
the Current Settlement Area.
Figure 9 compared the mix of the
forecast additional housing stock for each of four intensification
alternatives. Figure 10 compares the housing stock mix in 2006, with the mix
of the forecast total housing
stock in 2031 that would be expected for each alternative. The bars
show the composition of the estimated total Markham 2031 housing stock, by unit
type.
The existing housing stock mix identified for 2006 is based on Town
estimates. It shows a mix dominated by ground-related housing forms (singles,
semis and townhouses) with single detached housing still the most common form.
Estimates for the housing stock in mid 2008 indicate that the shares of each
unit type are similar, but with singles having dropped to about 55% of the
total units in the Town and apartments having increased to nearly 13%. These changes
are consistent with shifts in recent housing construction and the unit type shares
reflected in the forecast housing stock alternatives.
The housing stock alternatives incorporate assumptions regarding the
capacity of the Current Settlement Area (CSA) to accommodate additional housing
stock, in terms of potential on remaining greenfield lands and the proportion of the
additional stock achieved through intensification. Each alternative therefore, also
incorporates a component of additional housing that relies on extending the CSA
to incorporate some additional housing in the Whitebelt.
Figure 11 compares the four housing alternatives, in terms of the share
of additional dwelling units that would be added within the Current Settlement
Area, through additional greenfield development plus intensification,
and the share added in an extended Settlement Area. The shares located in an
extended Settlement Area range from 15% in Alternative 3 to 29% in Alternative 1.
Alternative 1 (40% housing intensification) falls short of the Region’s
forecasts for Markham. It cannot provide the level of
intensification within the Current Settlement Area (CSA) anticipated for the
Town. In addition, it would require a larger extension of the CSA to
accommodate the higher proportion of ground-related housing. Considering the
remaining three alternatives, the total housing stock resulting in 2031 would
continue to be predominantly ground-related unit types with an increased share
of apartments. For these alternatives, the
housing stock that might be added in an extended Settlement Area would not
exceed 20% of the total added in the 2006 to 2031 planning period.
Based on the three remaining alternatives current estimates suggest that
approximately 90% of the total Town 2031
housing stock could be located within the Current Settlement Area, within
and beyond the Built Boundary, with the balance in an extended Settlement Area.
Under Housing Stock Alternative 2, the mix of units to initially be
considered in the Whitebelt would be focussed on the need to address market
demand for ground-related housing. It is estimated that these units would only
need to constitute 20% of the total additional units added over the planning
period to 2031 and would represent only 10% of the total forecast housing units
in Markham by 2031.
Based on its forecasts for Markham, the Region of York has estimated
that the land requirement to accommodate new housing to 2031 in an extended Markham settlement area would be in the
order of 610 gross hectares, exclusive of lands identified for environmental
protection or other purposes. The
estimate of +/- 610 gross hectares is within the range identified through
preliminary work by Town staff.
It would be appropriate to assess the housing mix and density
assumptions on which this estimate is based, to confirm that the urban form can
be compact while still addressing the market need for new ground-related
housing, and to determine how possible variation in mix and density might limit
the land area required. Staff will report further on this assessment.
6.4 Ensuring the preferred
housing stock alternative will be viable
6.4.1 Markham’s
housing market comprises two distinct groups
Figure 12 illustrates the
relationship between the age of household heads (horizontal axis) and occupancy
patterns for different unit types within the Greater Toronto-Hamilton Area in
2006. There are essentially two main housing markets that need to be addressed
by the proposed housing stock, reflecting the two primary demographic groups seeking
accommodation in which the markets are based. This pattern would apply to the
housing market within Markham as
well.
The first is the family household
group whose housing preferences are predominantly ground-related housing types
including single and semi-detached dwellings and townhouses. As shown in Figure
10 ground-related housing comprises almost 90% of the Town’s current (2006)
housing stock. The second is the non-family and small family household group,
dominated by younger and older singles and couples, whose housing preferences
encompass higher density housing, typically offering smaller and less expensive
accommodation, and located close to community amenities and transit service. This
market is primarily served by apartment dwellings, but might include denser
stacked housing forms, which will be the predominant unit types built to
address the intensification requirements of the Growth Plan. Family households will continue to dominate
the Markham housing market, although there is expected to be an increase in the
non-family household market as the Town’s population ages, and the lifestyle and
economic arrangements on which new households are based, continue to evolve and
diversify.
6.4.2 Housing policy must
address market demand and supply
The operation of the housing
markets significantly influences the extent to which the housing stock can vary
from market preferences and remain viable. For example, if the housing mix
selected for the Town’s growth strategy incorporates significantly more high density
units in order to strive to increase the proportion of units achieved through
intensification, but there is no market demand for the increased number of
higher density units, they will not be built. There is no economic scenario in
which the housing market can be expected to supply housing for which there is
no demand. The problem of over-representing the proportion of high density
units in the housing mix is compounded
by the fact that even more higher density units are required to achieve a given
population forecast, when the number of ground-related units is correspondingly
reduced.
Concurrently, if the housing stock
includes a proportion of ground-related unit types, that effectively restricts
the supply relative to purchasers’ demands, they will direct their market
interest to other places where the preferred unit types are available. Only to
a very limited extent might a choice be made to substitute a higher density
unit. Generally, a high density unit can’t offer the same variety or amount of
accommodation space, or outdoor amenity space, as a ground-related unit.
6.4.3 There is a need to
minimize risk in the housing forecast and the revenues generated by housing
development
There is risk in forecasting the
preferred mix of housing to address future needs of the population inherent in
the required assumptions relating to the performance of the housing market. Risk can be addressed however, by adopting
realistic growth policies, through monitoring housing demand and supply, and by
ensuring the ability to adjust for differences, if warranted, between the housing
stock forecast for policy purposes and the housing stock in which the
marketplace demonstrates interest. The difference is more challenging to adjust
for, and therefore the risk is greater, in relation to the ground-related
housing, because new stock will typically involve the designation of additional
settlement area land, infrastructure construction and considerably longer lead
times to deliver, once the supply within the current settlement area is
developed.
Because the development of new
housing is relied upon to generate a significant share of the revenue to fund
required servicing, transportation and community infrastructure the risk
associated with selecting a housing mix extends to planning for a sufficient
and sustainable revenue stream. If less revenue is realized than planned for,
as the result of the construction of fewer units, it may be necessary to rely on
other revenue sources, if available, or to reschedule/postpone planned
infrastructure expenditures. There is also risk associated with the amount of
development charges revenue generated if the mix of units included in the
preferred housing alternative is not realized.
As noted in Section 2, the Markham
community has identified as priorities the need to:
·
maintain/improve
community infrastructure, enhance delivery of services to match pace of growth
·
develop
a financial strategy to sustain balanced growth, community infrastructure,
transit and environment funding
Within these expressed community priorities,
there is an inherent assumption that the growth strategy chosen for the Town
will ensure that the revenues required will be available to meet associated expenditures.
To ensure that this will be possible it
is essential to select as viable a housing mix as possible, and provide for the
capability to adjust policies, when warranted, to address housing market
conditions.
6.4.4 Regional and Town housing
policies should be generally consistent
Under the provisions of the
Provincial Growth Plan, the Region of York has the authority and responsibility
to ensure that the growth assigned to the Region is planned for and achievable.
As part of this authority, the Region assigns population growth to each
municipality, based on a housing mix intended to accommodate the population and
meet related Growth Plan targets. The Region of York is also the approval
authority for the Town’s Official Plan.
It is therefore regarded as preferable, if not essential, that there
should be general consistency between the housing market expectations reflected
in the Region and Town housing stock mix for Markham. This increases the potential to
coordinate the phasing and pace of growth, infrastructure delivery, and a viable
– achievable and defensible – growth strategy.
6.5 Preferred Housing Stock Alternative
In regard to the housing forecast for Markham, of the Alternatives examined, Staff
prefers Housing Stock Alternative 2. Staff recommends that:
·
recognising
that Housing Stock Alternative 1 achieves only 40% housing intensification
within the Built Boundary, it does not meet the minimum intensification target
for Markham proposed by the Region in their identified preferred growth scenario,
and should not be considered further;
·
Housing Stock Alternative 2 (55% housing
intensification), reflecting a slightly higher intensification target for Markham than the Region’s
preferred alternative (52% housing intensification), should be selected for
further review, including the preferred housing mix in an extended Settlement
Area. Alternative 2
is forecast to achieve 80% of the housing added up to 2031 within the Current
Settlement Area(CSA), and to therefore result in approximately 90% of the
Town’s total 2031 housing stock, being accommodated within the CSA;
·
the
review of Housing Stock Alternative 2 include comparison of practicable
opportunities and means to pursue additional housing intensification and
compact urban form; and,
·
the
Town should continue to work with the Region in reviewing housing stock alternatives.
On this basis, Staff will proceed with further evaluation, with public
consultation, as described in Section 11, and with other studies/ initiatives
related to the overall growth management exercise.
7. Accommodating Residential Intensification
within the Current Settlement Area
7.1 Potential Benefits of Intensification
Intensification, or increasing the density of development
within the Town’s current settlement area can occur in a number of ways:
·
through redevelopment of under-utilized lands;
·
infill of vacant lands or spaces between existing
buildings;
·
expansion or conversion of existing buildings;
and
·
development or redevelopment of large land areas
within the Town’s current settlement area (eg. the Markham Centre and Langstaff
Gateway lands).
Intensification has a number of potential benefits. More
compact and intense development within the Town’s Current Settlement Area can:
·
provide for higher density, mixed use and transit
supportive development which improves land use efficiency and creates more
sustainable communities;
·
reduce reliance on the automobile by providing
transit supportive densities which make it more feasible to provide efficient
public transit;
·
result in more efficient use of existing
infrastructure and reduce expenditures on servicing of new infrastructure in
undeveloped areas of the Town;
·
provide for a variety of housing forms to help
meet the needs of a diverse and aging population and offer more affordable
housing choices; and
·
slow the rate at which land is developed for
residential use and reduce development pressures on lands outside of the
current settlement area.
7.2
Requirement for a Town Intensification Strategy
Under the Provincial Growth Plan, all municipalities must
“develop and implement through their official plans and other supporting
documents, a strategy and policies to phase in and achieve intensification
within their current settlement area.”
For residential intensification, the Growth Plan has established a
target requiring that “by the year 2015 and for each year thereafter, a minimum
of 40% of all residential development occurring annually within each upper and
single tier municipality will be within the built up area.” The Province has
defined the built up area, in terms of the “Built Boundary” in each local
municipality in York, including Markham. The built up area forms part of Markham’s
Current Settlement Area. The Growth Plan also establishes a minimum density
target of 200 people and jobs per hectare by 2031 or earlier, for the provincially
designated Urban Growth Centres of Markham Centre and the Richmond
Hill/Langstaff Gateway.
York Region has endorsed the minimum 40% residential
intensification target (Region wide) and the Urban Growth Centre density target
as part of the Region’s preferred growth scenario and identified individual municipal residential
intensification assignments based on that scenario (See Section 6.2). The Region has also developed a framework to
guide area municipalities as they complete their own intensification
strategies. This guide to developing
area municipal intensification strategies complements the Regional urban
structure policies of the Centres and Corridors Strategy and Transit Oriented
Development Guidelines.
The Growth Plan intensification policies direct
municipalities to identify the appropriate type and scale of development in
intensification areas. To be effective in shifting new development toward a
more intense compact development form, the Provincial intensifi-cation targets
must be accompanied by a comprehensive package of supporting policies.
A strategy is necessary to guide Markham’s
vision for its intensification areas. A
vision is to create predominantly mixed use, pedestrian friendly, liveable
communities that are transit supportive with transit oriented development
within the Town’s current settlement area. The strategy must provide overall
direction on where intensification should occur, the amount of development that
is appropriate, and the anticipated phasing of new development. Details may be
subsequently refined in area studies. Intensification must be planned for and
guided by Town policies and requirements, and be directed to preferred
locations, away from established communities where it is not appropriate.
The scope of Markham’s intensification strategy must extend
beyond an empirical response to the Growth Plan intensification targets and
address other growth plan policies that relate to urban design, built form and
the appropriate type and scale of development, sustainable development
practices, connectivity which supports transit, walking and cycling activities,
a diverse and compatible mix of land uses including employment and residential
uses and a range and mix of housing, and community infrastructure to foster
complete communities.
7.3 Analysis of Intensification Potential
Part of the work toward developing an intensification
strategy for Markham includes an
analysis to estimate and identify intensification potential for future
residential and employment development.
Council has endorsed an intensification analysis that takes into
account:
·
community priorities outlined for the Town’s
Growth Management Strategy;
·
senior government initiatives for growth management
and transit infrastructure;
·
demographic trends such as an aging population
and an increased diversity of
households;
·
economic trends and land prices that impact
market choices; and
·
typical constraints to intensification including
community concerns, urban design
issues and infrastructure service issues.
The guiding principles for the Intensification Analysis are:
1. Redefine the Town’s urban structure to
manage intensification within the current settlement area without significantly
impacting the Town’s existing structure of low density neighbourhoods.
2.
Intensify and improve the mix of development and direct
it to designated centres and corridors which are well served and connected by
rapid transit to improve land use efficiency and create more sustainable
communities.
3.
Intensification should coincide with the delivery of
high order public transit as a reliable form of transportation infrastructure
and result in the creation of mixed use, pedestrian friendly, liveable
communities that are transit supportive and incorporate sustainable development
practices.
4.
Established residential areas, designated employment
areas and identified natural features must be protected from inappropriate
intensification.
5.
Focus intensification in areas that have a reduced
impact on Town infrastructure, or which justify investment in new and
sustainable infrastructure.
6.
Intensify development within the Town’s Current
Settlement Area and limit land for urban expansion outside of the Town’s
Current Settlement Area.
7.
Create live-work opportunities through mixed use
development.
8.
Improve connectivity by providing a street
network/public realm that is more conducive to transit, cycling and pedestrian
use, to reduce reliance on the automobile as a preferred mode of transportation.
9.
Intensification must be compatible in built form, scale
and character to surrounding development, and demonstrate appropriate gradation
of density.
10. Intensification
needs to be appropriate to the area context in which it occurs, the built form
of development, its height and density, the change and mix of uses involved,
and the relationship of the surrounding community form and function.
7.4 Intensification Areas are organized in terms of a
hierarchy of locations
The residential component of the intensification analysis
takes into account the intensification
hierarchy and strategy guide developed by the Region of York, in
consultation with local municipalities.
This is a policy regime that encourages allotting density in a
hierarchical manner with Regional Centres having the highest intensity of
development, followed by Regional Corridors, GO stations, Local Centres and
Major Corridors. In addition to this approach the Town’s analysis considers
current Town policy areas and study
locations for residential intensification and current residential
intensification development proposals. The intensification analysis does
not consider intensification in established residential areas, identified
natural features or residential intensification in designated office and
industrial lands.
A summary of the residential intensification potential
identified in the intensification analysis is outlined below. Staff will be preparing a separate report
outlining in further detail the findings of the analysis as well as a
recommended approach for the Town’s intensification strategy.
7.5 Where Residential Intensification can be accommodated
in Current Settlement Area
The results of the analysis of potential residential
intensification opportunities indicate that it would be appropriate to direct a
share of the total additional residential units identified in the Regional
forecast for Markham to
intensification locations. As recommended above, this share would be equivalent
to at least 55% of the total units added between 2015 and 2031, a number
sufficient to meet the Town’s contribution to the 40% intensification target
required to be met by the Region. Considering
the entire planning period from 2006 to 2031, the analysis suggests that the Town
could also meet or exceed 55% intensification throughout the whole 25 year period,
if the market for higher density housing is sufficiently strong. However, the
results also suggest that more of the potential residential intensification
opportunities occur later in the forecast period to 2031, and beyond 2031, as
the market interest in higher density housing forms is expected to strengthen,
over time.
Figure 13 depicts the overall context for both residential
and employment intensification opportunities within the Town’s current settlement
area. It identifies the current urban
settlement boundary in purple and a hierarchy of intensification opportunities
categorized as Regional Centres which are also provincially designated Urban
Growth Centres in pink, Key Development Areas along Regional Transit Corridors
in blue, locations on Major Corridors in green, and Local Centres in
orange. All of these intensification
areas are set within the context of the Metrolinx Regional Transportation
Infrastructure Plan.
Figure 14 identifies that the largest proportion of
additional residential intensification units (44%) will be directed to the two
Regional Centres of Markham Centre and the Langstaff Gateway. These Urban
Growth Centres are planned for the highest concentration and greatest mix of uses
in the Region, a range of housing and employment opportunities, and to be a
focus for strategic investment in transit. Both of these centres also contain
GO stations and have been identified as Mobility Hubs in the Metrolinx Regional
Transportation Infrastructure Plan. In
addition to accommodating a significant share of the Provincial residential
intensification target requirements, current planning for these provincially
designated Urban Growth Centres will exceed the minimum Provincial density
target of 200 people and jobs per hectare by 2031.
The next largest proportion of residential intensification
units (33%) will be directed to Key Development Areas (KDA’s) along the Avenue
Seven and Yonge Street Regional Transit Corridors. These KDA’s include Cornell
Centre, the Yonge/Steeles Corridor, Commerce Valley/Galleria, Markville,
Woodbine/404 and the Yonge North Corridor.
These Regional Corridors are the main arteries of the Regional structure
and the preferred routes for higher order rapid transit lines through Markham
with a GO station also located at Markville.
The Regional Centres and Key Development Areas, both strongly relate to
higher order rapid transit service, and together could accommodate as much as
77% of the identified intensification potential.
The balance of additional residential intensification units
(23%) is anticipated to occur along the Major Corridors of Markham Road,
Steeles Avenue and Kennedy Road, where the adjoining pattern of development can
accommodate change, and the Local Centres of Fairtree East-Parkview Centre,
Milliken Centre, Thornhill Centre, Cathedraltown Centre and Cornell North
Centre, which contain a mix of activities like Regional Centres but on a
smaller scale and serving the adjacent community. Both the Major Corridors and Local Centres
are served by local transit and in some cases contain GO stations.
7.6 Other Considerations in Accommodating Residential
Intensification
A key component of the Town’s intensification analysis and
emerging strategy will be the development of principles, guidelines and
performance standards for the mid rise and high rise buildings that will
accommodate the residential intensification units in terms of their location,
placement and separation, orientation, lot coverage and building floorplate
area, and measures to address the impact on the public realm and adjacent
residential neighbourhoods. Most of the Town’s existing residential
neighbourhoods have been established at lower densities and residents want
reassurance that new development directed to adjacent intensification areas
will be compatible in scale and context.
As part of the intensification analysis, Staff has retained
a consultant to complete a Built Form, Massing and Height study for select
locations identified for potential intensification. Among other things, this
study will focus on pedestrian-friendly, transit oriented development and demonstrate how policies relating to transition and urban
design can be introduced in the Town’s secondary plan studies to ensure that
new development adjacent to existing neighbourhoods respects the character and
scale of the neighbourhood.
Intensification projects also often demand a flexible, site-specific
response to implement principles of good urban design and planning of streets.
Therefore, the study will highlight any potential
conflict with Region and Town standards, practices and by-laws that may need to
be addressed.
The Built Form, Massing and Height Study will complement
work already underway on Secondary Plans, urban design guidelines, and open
space/public realm master plans across the Town at various locations such as
Markham Centre, Langstaff, Cornell Centre, and the Yonge/Steeles Corridor.
Increasing population density in intensification areas must
be coupled with public infrastructure that can accommodate the increased
activities of residents and ensure sufficient amenity space is provided. A further
study has been initiated to determine appropriate applications of the
provisions of Section 37 of the Planning Act to secure a range of public
benefits in return for increased height and/or density. Among other things, the study will determine
when a bonus density can be applied, how to assess (place value on) the
increase in density or height, and what services and facilities and other
matters should be secured, over and above the services and facilities that are
the result of the bonus density.
8. Forecast growth in employment for Markham is significant
The Regional forecast for employment growth in Markham proposes an increase of almost
104000 jobs over the 25 year forecast period. The forecast is broken down into
3 main categories of employment: Major Office, Employment Land and Population Related Employment.
Figure 15, which shows the breakdown of the forecast into these categories,
also shows that the shares of each category are approximately equal in 2006.
The forecast incorporates the largest share increase of 40% for Major
Office Employment (MOE). This translates into Markham attaining almost 70% of all MOE growth
within the Region as a whole, over the forecast period. The high proportion of
employment growth in this category reflects the Town’s historic strength as a
large office centre and an expectation that the Town will continue to attract
and accommodate large scale office developments at strategic locations. This
significant increase in MOE is consistent with the Town’s objectives for the
Markham Centre and the Langstaff Gateway Urban Growth Centres, Key Development
Areas that include large concentrations of business park employment and the objectives
of the Town’s Competitiveness Strategy.
The increase in Employment Land Employment (ELE) is sufficient to
maintain the share of the category in the total Town employment at about 35%.The
increase in Population Related Employment (PRE) (25%) is more modest than the
other categories and results in a reduced share of the total Town employment.
Taking account of the forecast employment growth for Markham, the recommendations of the
Competitiveness Strategy, and provisions of the Provincial Growth Plan, several
key parameters can be identified for planning for employment in Markham. These include:
·
preserve
established business park lands consistent with the intent of the employment
area provisions of the Growth Plan, with attention to:
o
determining
opportunities for appropriate redevelopment/intensification;
o
prohibiting
conversion of primary industrial lands to other uses; and
o
ensuring
that the primary planned functions of industrial lands take precedence over secondary
functions and that land use policies are structured to achieve this result;
·
direct
office intensification to locations served by higher order transit; focus on
Urban Growth Centres, Key Development Areas, Regional Corridors;
·
retain
and replace retail/service jobs in the redevelopment of retail lands;
·
identify
opportunities and requirements to accommodate employment within and beyond the
Current Settlement Area; and
·
“employment
first” as a policy in any consideration of extension of the Current Settlement
Area
8.1 Accommodating Employment Growth
Considering the employment forecasts, the identified parameters, and estimates
of the potential to accommodate employment through greenfield development and intensification,
staff has concluded the following:
Major Office Employment (MOE)
·
growth
in MOE should be directed to Urban Growth Centres and Key Development Areas on Regional
Corridors and established business parks
·
land
is available within the Current Settlement Area to accommodate most if not all MOE
growth, if this choice is made
Employment Land Employment (ELE)
·
some
infill/redevelopment of low intensity lands is possible, but should only occur
on the basis of no conversion to non-industrial or non-office uses
·
intensification
may accommodate office uses at key locations
·
some
land within Current Settlement Area (CSA) is available to accommodate ELE
growth, however, the use of all of this land for ELE is unlikely, given the
need to accommodate MOE at key locations and the existing permissions for non-ELE
uses available under current policies and zoning
·
extension
of the CSA at appropriate locations for new business parks to accommodate some
of the growth in ELE will be required; the requirements for such extension must
be given first priority in any consideration of extending the CSA; long term
protection for strategic employment lands must also be incorporated into any
CSA extension.
Population-Related Employment (PRE)
·
institutional
employment (primarily schools and worship related) will continue to locate
primarily in residential areas close to the population served; other types of
institutional employment should be encouraged to be accessible to rapid transit
·
work-at-home
employment will continue to contribute to PRE
·
retail
employment should be directed to new retail projects, and incorporated, if necessary by mandate, in mixed use
projects especially where residential intensification is to be permitted
·
in
cases where redevelopment involves existing retail sites serving local
communities, the retail jobs and functions should be preserved to deter the
loss of retail function to the communities
·
retail
and service uses should have locations and be of a scale to serve Markham residents and businesses, rather
than regional markets
·
some
land within Current Settlement Area (CSA) is available to accommodate some PRE
growth; additional land will be needed if the CSA is extended
These conclusions can be regarded as preliminary and should be reviewed
as part of the Employment Lands Strategy, currently being undertaken.
Compared to forecasting for housing, the
restrictions inherent in the employment forecasts and
the limits imposed by the available land supply, result in relatively little
flexibility in developing a strategy to accommodate employment growth. This
circum-stance favours pursuit of a single alternative to accommodate forecast
employment, coupled with an “employment
first” principle in any settlement area extension.
Analysis by staff suggests that most, if not all Major Office Employment
(MOE), can be accommodated within the Current Settlement Area (CSA), unless
some MOE is required in an expanded settlement area to maintain employment
densities at the minimum specified by the Province. Accounting for land for
MOE, the remaining supply of land within the CSA is estimated to be sufficient
to accommodate a large proportion of the forecast growth in Employment Land Employment
(ELE) and of the estimated growth in the retail component of the Population Related
Employment. This estimate assumes some intensification of ELE development to
assist in maintaining employment densities, plus the selective intensification
of ELE lands with MOE.
Current estimates by the Region indicate that
it should be possible to accommodate 75% to 80% of the forecast employment
growth for Markham, over the
period from 2006 to 2031, within the Current Settlement Area. These estimates are being reviewed as part of the Employment
Lands Strategy, currently being undertaken.
If this accommodation can be achieved, it is presently estimated that about 90% of the total 2031 employment
might be located within the Current Settlement Area, with the balance in an
extension of the CSA. These estimates will be reviewed as part of the
Employment Lands Strategy.
Based on its forecasts for Markham, the Region of York has estimated
that the land requirement to accommodate both business park and retail employment
growth to 2031 in an extended settlement area would be in the order of 560
gross hectares, exclusive of lands identified for environmental protection or
other purposes. The estimate of +/- 560 gross hectares is within the range
identified through preliminary work by Town staff. The estimate is being
examined as part of the work on the Town’s Employment Lands Strategy Study, and
will be reported on further by staff.
8.2 Recommended Employment
Alternative
It is recommended that the accommodation for
future employment growth described above be combined with the review of housing
stock alternatives, as outlined in Section 6.5.
9. Accommodating forecast growth is expected to
require land within and beyond the Current Settlement Area
Based on the estimates described above it appears possible that the Town
might accommodate in the order of 80% of new growth to 2031 and 90% of the
total combined 2031 population and employment within the Current Settlement Area
(CSA). The balance of the forecast 2031 population and employment would need to
be accommodated by extending the CSA.
Figure 16 summarises the possible breakdown of land in Markham that might be anticipated if an
extension to the Current Settlement Area is required to accommodate
approximately 10% of Markham’s total 2031 population and
employment. It is helpful to understand that the amount of land in the
Whitebelt that is potentially available for consideration of a possible
extension of the Current Settlement Area to accommodate additional population
and employment growth, (ie. apart from land within the CSA, land comprising the
proposed Greenway System and land devoted to existing uses outside the CSA)
amounts to about 11% of the Town’s total land area. Of this 11%, it is
estimated that a little less than half, or about
5% of the total land within the Town might be required for an extended
settlement area over the 25 year planning period to 2031.
Based on its forecasts for Markham, the Region of York has estimated
that the land requirement to accommodate residential and employment growth to
2031 in an extended settlement area would be in the order of 1170 gross
hectares, exclusive of lands identified for environmental protection or other
purposes. Through the proposed further review of housing stock alternatives and
the review of employment land requirements through the Employment Lands Strategy
Study, staff will address intensification and compact urban form as this
relates to limiting the expansion of the Current Settlement Area to the
extent practicable.
10. The housing and employment growth alternatives
should be evaluated relative to other Town initiatives
Council has authorized a number of policy initiatives
that can contribute to the evaluation of the residential and employment growth
alternatives, including:
·
Markham Strategic Transportation Plan
·
Master
Servicing Study
·
Employment
Lands Strategy
·
Parks,
Recreation, Culture & Library Master Plan
·
Community
Sustainability Plan (Green Print)
·
Financial
Analysis
It is recommended that these initiatives be
used to provide criteria for a high level evaluation of the preferred growth alternatives
to form the basis for a growth management strategy. This evaluation can be
combined with public and stakeholder comment to provide the basis for Council to
confirm or refine the alternatives.
Staff proposes therefore, to:
·
proceed
on the basis of the Markham residential and employment
alternatives outlined in this report, including the proposed evaluation;
·
use
the Markham alternatives as the basis for
initiating the Public Engagement Program for the Growth Management Strategy, as
outlined in Section 11;
·
continue
to work with the Region of York to refine the Markham alternatives;
·
report
back to the Committee on evaluation of the growth alternatives and public
response regarding the alternatives; and
·
prepare
a draft Growth Management Strategy for Council to endorse by June 2009.
11. Public Engagement Program to Commence in
February, 2009
In September,
2008, a proposed work program for public engagement around the Growth
Management strategic priority of Building Markham’s Future Together (BMFT) was
presented to Development Services Committee.
The presentation was made by the Town’s consultant, “DPRA” who have been
retained to develop and implement the public engagement program.
The
objectives of the public engagement program are to:
·
continue
the dialogue with the Markham community on the growth management
strategic priority initiated in Click with Markham and established in Building
Markham’s Future Together (BMFT);
·
engage
the public in discussion of a Growth Management Strategy (GMS) in a meaningful
way;
·
educate
the public on senior government growth policies and planning, opportunities for
growth within the Town and their implications;
·
obtain
public input/consensus regarding opportunities for growth, and
implementation/phasing of growth;
·
establish
effective user-friendly means of communicating information regarding the GMS
and the planned preparation of a new Official Plan to the public;
·
assist
Council and staff at organized meetings with the public;
·
assist
in ensuring coordination with various ongoing communication/consultation
efforts related to the Town’s six strategic initiatives (BMFT), and
·
keep
Council and staff informed about the program.
The
proposed work program outlined three distinct stages or rounds of public input.
The first round of consultation was proposed to be preceded by a launch event
which would set the stage for subsequent consultation sessions by providing a
high level overview of the context underlying the Growth Management Strategy
(GMS). This high level overview would
include emerging global issues which affect planning and growth management,
provincial Growth Plan requirements and Region of York growth management work
to date, and also how the GMS fits in with Building Markham’s Future Together
(BMFT).
The proposed engagement program has been revised to reflect the timing and
sequence of the Building Markham’s Future Together public consultation
initiatives, and the recommendations
of the September 23, 2008 staff presentation on growth opportunities,
as further refined in this report. In regard to residential intensification, the
community dialogues will need to describe housing stock alternatives, and to provide
information on, and the opportunity to discuss, practicable opportunities and
means to pursue additional housing intensification and compact urban form. Since the September 2008 presentation
regarding the public engagement program for the Growth Management Strategy,
there has also been further staff analysis
and discussion with the Committee in regard to growth opportunities and
alternatives.
Based on
the foregoing, the engagement program has been revised, and is as follows:
·
Launch
event – scheduled for Monday February 9th. This event will also include an overview of
the Transportation Strategic Plan, and will constitute the roll-out session of
both the Growth Management and Transportation BMFT strategic initiatives. A draft agenda for this event is included in
Appendix ‘A’.
·
Community
Dialogues – to be scheduled over a 3 to 4 week period in late February/early
March. The Community Dialogues will
consist of a meeting for each of Markham’s four communities (Markham,
Milliken, Thornhill, Unionville) to discuss growth forecasts and alternatives. These meetings will also include discussion
of transportation issues including the Transportation Strategic Plan.
·
In
addition, meetings will be held with individual stakeholders upon request.
Staff will also present to existing Town committees/groups such as the
Markham Centre, Cornell and Main Street Milliken Advisory Groups and the
Mayor’s Youth Task Force.
·
Online
consultation – in addition to the scheduled meetings, public input will be
solicited through the Town web site.
Communications
A number of
communications tools will be used to provide information and educate the public
regarding the Growth Management Strategy (GMS), including:
·
GMS
web page – to be used as a home page for all GMS related reports, notices of
public meetings, links to relevant sites, etc.
·
GMS
workbook – the workbook will consist of a number of questions to be considered,
and is intended to generate and organize discussion in a meaningful way. The workbook will be handed out at public
sessions, and posted on the GMS web page.
·
Use
of public information boards at Town buildings, shopping mall displays etc.
A summary
of public comment received, will be presented to Development Services Committee
as part of an overall GMS update in April.
Further consultation will occur
once a draft growth management strategy is developed and brought before
Council.
12. Markham should request a one year extension to the
deadline for conformity with the Provincial Growth Plan
As identified above,
municipalities are required by the Places to Grow Act to amend their Official
Plans to conform to the Provincial Growth Plan by June 2009. In Markham’s
case the Town’s new Official Plan must also conform with the Regional Official
Plan (ROP), as amended to conform to the Growth Plan. It is understood that the
Region of York is working to a schedule that provides for the preparation of an
amendment to the ROP to be available for adoption by the June 2009 deadline.
In November, 2008 the Minister of
Energy and Infrastructure announced that he would consider deadline extensions
for meeting the Growth Plan conformity requirement, of no more than 12 months,
for lower-tier municipalities who request one. The Town will require time to consider
how the policies of the amended ROP should be incorporated into a new Town
Official Plan, to achieve conformity with both the Provincial and Regional
growth policies.
Staff has proposed to Council that
endorsement of a Town Growth Management Strategy by June 2009 is reasonable, and
demonstrates the Town’s consideration of senior government growth policy, to be
followed by preparation of a new Official Plan. Given that the ROP is not anticipated
to be amended until mid 2009, this approach continues to be preferred, but with
an extension to the Provincial conformity deadline.
