Report to: Development Services Committee Report Date: September 14, 2010

SUBJECT: INFORMATION REPORT

Milliken Development Corporation

Proposed Official Plan and Zoning By-law amendments to permit four (4) seniors’ buildings, ranging in height from 6-12 storeys, with a total of approximately 509 units at

31, 67 & 73 Old Kennedy Rd and 4550 & 4576 Steeles Avenue

Files: OP 10 120215 and ZA 10 120216

PREPARED BY: Anna Henriques, on behalf of the Central District, ext. 7922

RECOMMENDATION:

That the staff report entitled “INFORMATION REPORT, Milliken Development Corporation, Proposed Official Plan and Zoning By-law amendments to permit four (4) seniors’ buildings ranging in height from 6-12 storeys with a total of approximately 509 units at 31, 67 & 73 Old Kennedy Road and 4550 & 4576 Steeles Avenue”, be received.

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

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

PURPOSE:

The purpose of this report is to provide preliminary information on the proposed Official Plan and Zoning By-law amendment applications. The Town’s CAO has authorized a statutory Public Meeting which is scheduled for September 14, 2010. This report contains general information regarding applicable Official Plan or other policies as well as other issues and the report should not be taken as Staff’s opinion or recommendation on the application.

BACKGROUND:

Subject Property and Area Context

The subject lands are comprised of 5 properties which are located in the Milliken Mills community, near the northeast corner of Old Kennedy Road and Steeles Avenue. The properties are municipally known as 31, 67 and 73 Old Kennedy Road and 4550 and 4576 Steeles Avenue (Figure 3 & 4). Only a portion of the properties on Old Kennedy Road and Steeles Avenue constitute the ‘subject lands’. The subject lands have a combined area of approximately 1.72 hectares (4.25 acres).

Two (2) properties comprising the subject lands are vacant, 31 Old Kennedy Road, located in the western and central portion of the subject lands and 4576 Steeles Avenue (Town owned residual parcel from proposed extension of Midland Avenue) located at the eastern boundary of the subject lands. The property immediately west of 4576 Steeles Avenue, municipally known as 4550 Steeles Avenue, contains a large building known as the Milliken Flea Market. The property municipally known as 67 Old Kennedy Road contains a single storey dwelling that is vacant. Immediately north of this property is 73 Old Kennedy Road which also contains a single storey detached dwelling that is vacant.

Surrounding land uses include residential townhomes (under construction) immediately to the north, existing single detached homes as well as a 7 storey apartment building and townhomes (both under construction) immediately to the east (opposite future extension of Midland Avenue proposed along eastern edge of subject lands), commercial/retail use to the south across Steeles Avenue and a number of single detached dwellings, a gas station and an auto repair facility immediately abutting the subject lands to the west, along the east side of Old Kennedy Road. The west side of Old Kennedy Road contains mainly retail uses, including automobile sales establishments (Figure 3).

Applications deemed complete

The proposed Official Plan and Zoning By-law amendment applications were deemed complete by staff on July 23, 2010.

Proposal

The applicant is proposing four (4) seniors’ buildings, to be developed in conjunction with the Mon Sheong organization, intended to accommodate the needs of seniors in the community. The proposed seniors’ development also contemplates the future extension of Thelma Avenue through the centre of the site and the extension of Midland Avenue, along the eastern boundary of the site. Details with respect to the proposed buildings, as shown on the proposed site plan (Figure 4), are outlined below:

Building	Use	# Units	# Storeys	Total GFA	Amenity Space	Frontage
2A	Independent Living	216	12	201,105 ft^2 (18,683 m^2)	28,793 ft^2(2,675 m^2)	Thelma Ave
2B	Independent Living	136	8	126,830 ft^2(11,783 m^2)	28,793 ft^2(2,675 m^2)	Thelma Ave & Midland Ave
4A	Long-Term Care	37 (8-10 beds per unit)	6	66,246 ft^2(6,154 m^2)	36,600 ft^2(3,400 m^2)	Thelma Ave
4B	Assisted Living	120	6	85,587 ft^2 (7,951 m^2)	20,107 ft^2 (1,868 m^2)	Thelma Ave & Midland Ave
Total		509		479,768 ft^2 (44,572 m^2)	114,293 ft^2 (10,618 m^2)

Proposed amenity space will generally be located on the main floor of each building, intended for use by building residents only.

Approximately 324 resident and visitor parking spaces, mostly underground, are proposed as part of the proposal. Approximately 176 spaces are proposed north of Thelma Avenue (19 spaces above grade) and approximately 148 spaces are proposed south of Thelma Avenue (18 spaces above grade).

Phasing plan proposed

The applicant is proposing to develop the subject lands in two (2) phases. Phase One consists of the seniors’ proposal as outlined above and is the subject of the proposed Official Plan and Zoning By-law Amendments currently under consideration. A site plan application for Phase 1 is expected to be submitted in the near future. The balance of the subject lands located south of Phase One (portion of 31 Old Kennedy Road, 4550 and 4576 Steeles Avenue) and west of the subject lands (portion of 67 and 73 Old Kennedy Road) will be developed as a future Phase Two. An overall concept plan for Phase 1 and 2 has been submitted in conjunction with the subject Phase 1 applications for information. Phase 2 contemplates two (2) residential apartment buildings with ground floor retail and will be the subject of a future application (Figure 4).

Official Plan and Zoning

The northern portion of the subject lands, north of the proposed extension of Thelma Avenue, are designated ‘Urban Residential – Medium Density Residential’ in the Official Plan and the Main Street Milliken Secondary Plan. This designation contemplates a range of residential housing forms such as townhouses, stacked townhouses, garden court apartments, terrace houses, duplexes, triplexes and other forms of multiple unit housing. The ‘Medium Density Residential’ designation also provides for a maximum density of 79.9 units per net hectare (32 units per net acre) and a maximum building height of generally 3 storeys. Exceptions to increase the height to 4 (four) storeys can be considered subject to appropriate integration with surrounding development and approval of a specific development proposal.

The southern portion of the subject lands, south of the proposed extension of Thelma Avenue, are designated ‘Commercial – Community Amenity Area (Steeles Avenue)’ in the Official Plan and Milliken Main Street Secondary Plan. The ‘Community Amenity Area – Steeles Avenue’ designation is intended to develop with retail and office uses along Steeles Avenue. Medium or High Density residential uses are permitted subject to a site specific development application and zoning amendment. The Floor Space Index (FSI) shall generally not exceed 1.5 and the maximum building height shall generally be five (5) storeys. Exceptions to the height may be permitted subject to appropriate integration with surrounding development and approval of a specific development proposal. It is expected that all new development within the ‘Community Amenity Area – Steeles Avenue’ designation shall be compatible in terms of built form and character with abutting residential uses.

The secondary plan also contemplates (conceptually) the location of the extension of Thelma Avenue (local road) and Midland Avenue (minor collector road), consistent with the proposal submitted by the applicant.

The portion of the subject lands located north of the proposed extension of Thelma Avenue are zoned ‘Residential Two - HOLD’ [R2*276(H)]. The portion of the subject lands south of the proposed extension of Thelma Avenue are zoned ‘Community Amenity Area Four - HOLD’ [CA4*285(H)] in By-law 177-96, as amended. A zoning by-law amendment is required to remove the Holding provision and to implement the proposal.

OPTIONS/ DISCUSSION:

Issues and concerns to be addressed

Town staff have identified some potential issues and concerns with the proposed official plan and zoning by-law amendment that will need to be addressed as part of the application review process:

Proposed official plan amendment significantly exceeds secondary plan permissions

The proposed use for the site is generally consistent with what is contemplated in the secondary plan, however, the proposed density and height are well in excess of secondary plan permissions. The Milliken Main Street Secondary Plan is a fairly new document (2006) which culminated a collaborative process with the City of Toronto, focused on the highly constrained local road network. The density limits incorporated into the secondary plan were negotiated with the city of Toronto to address this concern. The requested increase in height and density may potentially be a concern for the City of Toronto due to limited road capacity and may set a precedent for similar increases in height and densities elsewhere in the secondary plan and in the context of the applicant’s Phase 2 concept plan.

The applicant is requesting a site specific amendment to the ‘Urban Residential – Medium Density’ designation to permit the proposed increases in height and density. However, staff will review the proposed amendment to confirm the best approach. Designating the lands ‘Urban Residential – High Density II’ may be an option. ‘Urban Residential – High Density II’ permits multiple housing with a density range of 99-148 units per net hectare. The following is a preliminary breakdown outlining secondary plan permissions versus what the applicant is proposing:

‘Urban Residential – Medium Density’

Secondary Plan Permissions	Proposed
Height – generally 3 storeys	6 storeys
Density – 79.9 units per net hectare	178.6 units per net hectare*

*Calculation based on preliminary net development area calculation of 0.879 ha

In addition to the above, an amendment to the secondary plan may be required to permit the long-term care and assisted living uses within the ‘Urban Residential – Medium Density’ designation.

‘Community Amenity Area – Steeles Avenue’

Secondary Plan Permissions	Proposed
Height – generally 5 storeys, abutting low density residential, generally 3 storeys	8-12 Storeys
Floor Space Index – 1.5	4.75

Milliken Advisory Group

The proposal is scheduled to be presented, by the applicant, to the Milliken Advisory Group on September 30, 2010, for their review and consideration.

Land ownership

The applicant needs to confirm ownership of the subject lands. The proposal includes residual Town owned lands on the west side of the future Midland Avenue extension which are not identified on the proposed site plan (4576 Steeles Avenue). These lands will need to be purchased from the Town and incorporated into the overall project.

Completion of EA for Midland Avenue and dedication of Thelma Avenue required

The environmental site assessment for Midland Avenue is underway and must be completed to confirm the east boundary of the site and to provide access to a public road. In addition, the extension of Thelma Avenue (local road) is required in order to provide access and frontage for buildings 2A and 4A. These roads will be required to be built and conveyed to the Town (Thelma Avenue and northern portion of Midland Avenue) through a plan of subdivision and subdivision agreement or through a consent application, secured with a development agreement. In the event that Thelma Avenue cannot be constructed through to Old Kennedy Road as part of this application, a temporary cul-de-sac may be required at the termination of the extension of Thelma Avenue (western end of the subject lands).

Environmental Site Assessment required for subject lands

Given the nature of former industrial uses on the subject lands an Environmental Site Assessment (Phase I & II) has been prepared for the subject lands and will be peer reviewed by the Town to determine the appropriateness of the proposed use for the subject lands and if remediation of the lands is required.

Subject properties contain building with ‘heritage significance’

The property municipally known as 73 Old Kennedy Road contains a one storey ‘Edwardian Classical’ building that has been identified by the Town as being of heritage significance. Although the building is located outside of the developable area for Phase 1 (subject lands), Town of Markham heritage department input on the proposal will be required.

Traffic Study submitted

A traffic study has been submitted to address staff concerns with respect to the requested increases in density and any potential impacts on the nearby road network for review and approval by staff, the Region of York and the City of Toronto.

Servicing allocation may be required

The applicant will need to confirm the programming for the proposed two independent living buildings (approximately 352 units - buildings 2A and 2B) in order for staff to confirm if servicing allocation is required.

Tree inventory and preservation

The subject lands contain mature vegetation and a tree inventory and preservation plan has been submitted for review and approval in conjunction with the proposal.

Interface with townhouses to the north

Staff have potential concerns with the proposed development as it relates to the townhouse development (under construction) to the north. A site plan application will be required to deal with issues relating to appropriate buffering to minimize any potential impacts.

FINANCIAL CONSIDERATIONS AND TEMPLATE: (external link)

Not applicable.

HUMAN RESOURCES CONSIDERATIONS

Not applicable.

ALIGNMENT WITH STRATEGIC PRIORITIES:

Growth Management and Municipal Services:

The proposal is consistent with policies supporting the efficient use of land and infrastructure by providing a more compact built form and serving the needs of seniors in the community.

BUSINESS UNITS CONSULTED AND AFFECTED:

This application has been circulated to Town departments and public agencies, including the City of Toronto, for comment, and any comments will be addressed in detail in the final recommendation report.

RECOMMENDED BY:

_____________________________ _________________________________

Biju Karumanchery, M.C.I.P., R.P.P. James Baird, M.C.I.P., R.P.P

Senior Development Manager Commissioner of Development Services

ATTACHMENTS:

Figure 1: Property Location

Figure 2: Air Photo

Figure 3: Area Context/Zoning

Figure 4: Proposed Site Plan

Agent:

David McKay

MHBC Planning limited

7050 Weston Road

Vaughan, ON

Tel: 905-761-5588

Fax: 905-761-5589

File path: Amanda\File 10 120215\Documents\information report