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REPORT
TO DEVELOPMENT SERVICES COMMITTEE |
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TO: |
Mayor and Members of Council |
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FROM: |
Jim Baird, Commissioner of Development
Services |
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PREPARED
BY: |
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DATE
OF MEETING: |
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SUBJECT: |
Proposed
Precinct Plan |
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RECOMMENDATION:
That the
report dated
That a
public information meeting be held to discuss the proposed East Precinct Plan
as discussed in this report;
And
that notice for this
meeting be consistent with that given for the open
house in the summer, with the
boundaries for circulation purposes being the greater of 120 metres or the
limits of the GO line to the West, Highway 7 to the north,
PURPOSE:
The purpose
of this report is to advise Council of the status of the work that has been
on-going on the East Precinct Plan in Markham Centre, and to seek direction to
call a public information meeting to consider this non-statutory guideline
document.
EXECUTIVE SUMMARY:
In February 2004, Urban
Strategies was retained by the Town to review development alternatives in order
to draft the Markham Centre East Precinct Plan.
The East
Precinct comprises approximately 46 ha (114 Acres) of land in multiple ownerships, and includes the extension
of
Since the initial draft
of the Precinct Plan was completed staff have met
individually with landowners and have hosted a meeting of all of landowners
with the local Councillor. As well, a
Community Information meeting was held on
As outlined
in the Markham Centre Secondary Plan (OPA 21), a Precinct is a smaller
geographic area within a Planning District which is more suited to a detailed
study of such matters as street, block
and lot pattern; type, height and location of buildings; and, street sections (including
right-of-way requirements) and views.
The Secondary Plan requires that Precinct Plans, a non-statutory
guideline document, be endorsed by Council, prior to approval of any
development application.
The Draft
Precinct Plan consists of two schedules (Precinct Plan Description and Precinct
Plan Density Allocation – Figures 1 and 2 respectively) and a series of
Development Principles (Appendix 1). The
Plan provides for a series of 6 to 8 storey residential buildings with a strong
street relationship, and a residential floor space index (F.S.I.) is 2.5. Office
development on the south side of the GO access road would have an F.S.I. of
1.5.
The
Development Principles document reflects discussions that staff
have had with area landowners, and they are intended to address some of
the unique land use issues which may not be represented in a land use
schedule. Such matters include detailed
Land Use and Urban Design, Street System, Parks and Open Space, Storm Water Management
Ponds and Place of Worship.
Prior to finalizing
the Precinct Plan, it is recommended that a public information meeting be held to provide the landowners and local
residents an opportunity to comment on the Precinct Plan.
BACKGROUND:
In February 2004, the
Town of
The consultants completed
their initial work and staff have met with individual landowners
within the East Precinct to discuss the draft Precinct Plan, as well as the
draft of the proposed Density Allocation (Figures 1 & 2 enclosed). Staff and the local Councillor, have also hosted
a larger meeting with all of the landowners, and a Community Information
meeting was held on
DISCUSSION:
The
The
requirements associated with the preparation of Precinct Plans are set out in
the Markham Centre Secondary Plan (OPA 21).
A Precinct is a smaller geographic area within the Markham Centre
Planning District which is more suited to a detailed study of such matters as
street, block and lot pattern; type,
height and location of buildings; and, street sections (including right-of-way
requirements) and views. Precinct Plans
establish parameters for detailed land uses and built form and are intended to
provide a physical representation of a proposed community to assist the Town in
determining appropriate zoning, subdivision and infrastructure requirements. The Secondary Plan requires that Precinct
Plans be endorsed by Council, prior to approval of any development application. The plan further recognizes that Precinct
Plans are non-statutory documents and that modifications to Precinct Plans may
occur in conjunction with the processing of development applications.
East Precinct includes a mix of properties and
uses
The East
Precinct comprises approximately 46 ha (114 Acres) of land owned by several
individuals or corporations. Significant
holdings within the Precinct include the Town of Markham, who has recently
acquired 10.35 acres south of the GO access road from the Ontario Realty
Corporation (O
The YMCA
owns 1.6 ha (4 acres) on the south side of the GO access road which are under
construction for their 5,628 square metre (60,580 square foot) Markham Family
YMCA, and which includes the Thomas Rivis heritage
house. An additional 0.8 ha (2 acres)
are under a long-term lease from the Province for surface parking.
Smaller
ownership interests within the East Precinct include the two Quan properties, consisting of a gas bar, 4-bay automobile
service centre building, as well as a separate, 2-storey brick building housing
Quan Appliances.
The Town is currently in negotiations to acquire portions of the Quan properties in conjunction with the second phase
extension of
Other
notable features within the East Precinct include the
All
properties within the Precinct have frontage on and take their access off
either
Draft Precinct Plan consists of two schedules
and Development Principles
The Draft
Precinct Plan consists of two schedules (Precinct Plan Description and Precinct
Plan Density Allocation – Figures 1 and 2 respectively) and a series of
Development Principles (Appendix 1). The
Plan provides for a series of 6 to 8 storey residential buildings with a strong
street relationship, while internal blocks could be up to 6 storeys in height. The proposed net residential floor space
index (F.S.I.) over a site is 2.5, with opportunities to introduce
grade-related retail throughout the plan.
Consistent with the Secondary Plan, potential gateway locations have been identified where heights could
increase to 9 to 13 storeys (or residential equivalent). Office development on south side of the GO
access road would have a F.S.I. of 1.5, in accordance with recent zoning
amendments on the former O
The Precinct Plan’s Description schedule
outlines the future road network and
locations for signalized intersections.
This network includes the ultimate extension of Enterprise Boulevard to
Kennedy Road (via Unionville Gate); a new north/south street bisecting the
Emerson site; the termination of Main Street South via a westerly link through
the Emerson site to the recently constructed Rivis
Road which connects Enterprise Boulevard and the GO access road; as well as a
future local street through the Kopansky/Co-operators sites to connect the high
school site to Enterprise Boulevard. In
addition, a new ring road is proposed through the Provincial and Town-owned
lands on the south side of the GO access road.
This road is intended to facilitate access to future office development
adjacent to Highway 407; long-term access to the YMCA, in the event that the
Province terminates the lease on the lands the YMCA is using for parking; and,
to provide secondary access to the GO Station and future 407 Transitway terminal.
The Description schedule recognizes the
existing 0.9 ha (2.2 acre) woodlot and proposes a 0.5 ha (1.2 acre) parkette in front of high school site. This parkette would
provide a context and buffer for the woodlot and would also serve to provide
access and visibility to
Proposed
stormwater management ponds, which have been the
subject of a recent Environmental Assessment, have been identified on the
Schedules, as has the future York Rapid Transit Plan (YRTP) dedicated rapid
transit alignment, and York Durham Sanitary Sewer (YDSS) easement.
The Development Principles Document was
prepared following discussions that staff have had individually and
collectively with area landowners. The
principles are intended to articulate how these lands could be developed and to
address some of the unique land use issues which may not be represented in the
land use schedule. These principles
speak to matters of detailed Land Use and Urban Design, Street System, Parks
and Open Space, Storm Water Management Ponds and Place of Worship (Appendix 1).
As
discussed in more detail later in this report, the residential units and
employment floor area proposed in the Precinct Plan can be achieved as a result
of proximity to Highway 407 and the Unionville GO Station, and opportunities
for structured parking and rapid transit being introduced through the
plan. These densities further support
the Town’s desire to create a truly mixed-use, live-work environment, at an
intensity of development which will contribute to a transit supportive downtown.
OFFICIAL PLAN:
East Precinct contains a mix of land use
designations
A number of
land use designations within the Secondary Plan, apply to lands within the East
Precinct, the most predominant of which is the Community Amenity Area – General
designation. Additional land use
designations include Community Amenity Area – Major Urban Place; Business Park
Area, adjacent to Highway 407; Open Space – Environmentally Significant (a
plantation-type woodlot located to the rear of the Kopansky property); and, Open
Space (adjacent to the woodlot and at the south-east corner of the
precinct). The plan also identifies a
secondary school site within the precinct on lands designated Open Space.
The
Secondary Plan’s Community Amenity designation is intended to accommodate a mix
of residential, commercial, employment and community uses, in a
pedestrian-friendly manner. The
Secondary Plan also recognizes that lands designated Community Amenity Area –
General may be used predominantly for medium and high density residential use,
subject to review of specific development proposal and rezoning. The land use pattern as set out in the
Precinct Plan envisions a residential community on lands north of the GO access
road, business park, recreational and transit-related
uses to the south of this road, and a variety of residential open space,
institutional and grade-related retail uses on the balance of the lands. While the placement of proposed land uses
within the draft Precinct Plan represents a distribution model that is more
defined than the general land use context contained in the Secondary Plan,
overall, the type and range of uses proposed are consistent.
It is noted
that, with the exception of the lands with the Environmentally Significant Area
designation, the Secondary Plan recognizes that locations, configurations and
boundaries of lands designated Open Space shall be confirmed through Precinct
Plans and implementing development plans and may be revised in the process of
development approval, without further amendment to the Secondary Plan, to the
satisfaction of the Town and authorized agencies. In addition, the Secondary Plan allows school
sites to be relocated without amendment to the plan, provided the alternate
sites are consistent with the community structure of the Secondary Plan.
Other
Secondary Plan policies recommend that the woodlot, generally located to the
rear of the Kopansky property, be protected, as reflected in the
Environmentally Significant Area designation, with the designation to include
appropriate buffers. An Environmental
Impact Study may be required by the Town, prior to approval of development
applications in the vicinity of the woodlot.
While the woodlot is intended to be incorporated into a neighbourhood
park and will be credited as parkland, the Secondary Plan recognizes that a
density allocation may be transferred from the buffer to adjacent or nearby
lands.
The
Secondary Plan also recognizes that, notwithstanding the Community Amenity Area
designation, the existing industrial/manufacturing use (the Emerson building)
on Main Street is permitted and may be allowed to expand subject to appropriate
development applications.
The
proposed residential density of 2.5 F.S.I. support’s York Region’s Centres and
Corridors polices which seek to introduce development at levels which can
contribute to and sustain its long-term transit and intensification
strategies. As discussed below, these
densities are considered appropriate for the East Precinct based on proximity
to the GO Station, VIVA rapid transit, local bus routes and the future Highway
407 Transitway; as well as future opportunities for
structured parking and access to Highway 7 and 407; and, improved access
opportunities resulting from the extension of
While the
land use development concept proposed by the East Precinct Plan is consistent
with the applicable designations of the Secondary Plan, individual development
applications would evaluated separately with a view to compliance. The Precinct Plan would be used as a guide to
assist in the review of specific development proposals which would also be
evaluated against relevant by-law standards and the Markham Centre Performance
Measures Document.
Centre
East District (East Precinct) targets will be monitored and up-dated
The Markham Centre Secondary Plan (OPA 21) includes Appendix I – Central Area Statistics
which identifies the anticipated amount and distribution of development within
the individual districts that comprise the Secondary Plan area. The targets are monitored to ensure parks,
schools, roads, water and sewage capacity match development levels and that
infrastructure can be adjusted to maintain a balance as development
proceeds. Although the Central Area
Statistics are not an operative part of the Markham Centre Secondary Plan,
proposals must be considered in relation to the employment, population and unit
targets contained therein, with the intent that development levels will be
monitored and the projected level of infrastructure adjusted to keep in balance
and pace with development. The plan
recognizes that individual Precinct Plans will further refine the values
contained in the tables for the various districts.
The density projections for the Centre East District originally envisioned 1,200 residential units (400 medium and 800 high density), a population of 2,800 people, 6,000 square metres of retail floor area and 42,000 square metres of employment floor area. One secondary school site was identified in this district.
As noted
below, the draft Precinct Plan proposes introducing a greater residential
component while also increasing the employment projections.
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Table One East District Targets |
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OPA 21 –
Original Targets |
Revised
Per Precinct Plan |
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Target
Residential Units |
400
medium density units 800 high
density units |
2,212
high density units |
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Target Residential Population |
2,800
persons * |
4,864
persons ** |
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Schools |
1
secondary |
1
Secondary |
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Target
Retail |
6,000
square metres |
N/A *** |
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Target
Employment |
42,000
square metres |
104,174
square metres **** |
* Assuming 3.0 persons per medium
density units & 2.0 persons per high density units
** Assuming 2.2 persons per unit
*** Grade–related retail will be achieved in
concert with individual development applications
**** Assuming an F.S.I. of 1.5 and excluding the
YMCA and GO Transit lands
The
introduction of the additional residential units and employment floor area
supports the Town’s desire to create a truly mixed-use, live-work environment,
at an intensity of development which will contribute to a transit supportive
downtown. With respect to
non-residential uses, the additional floor area can be achieved as a result of
structured parking, proximity to Highway 407 and the Unionville GO Station, and
rapid transit being introduced through the plan. These projections are generally consistent
with the Town’s recent up-date of the Development Charges By-law and will be
reviewed in more detail as staff report on individual development applications.
It is noted
that the background traffic study for the design and
construction of
Zoning Amendments will be Required
The bulk of
the lands north of the GO access Road and a small portion to the south are
governed by the provisions of one of the Town’s older zoning by-laws (By-law
122-72). Given the restrictive nature of
existing by-law permissions, the introduction of high density residential uses
will require comprehensive zoning by-law amendments to achieve the Town’s urban
design and transit supportive objectives.
Staff anticipate that as zoning amendments are
approved by Council the East Precinct lands would be incorporated into the new
Markham Centre Zoning By-law, consistent with other recent development
approvals.
Landowner Discussions have Occurred
Staff have
met with individual property owners as well as hosted a Landowner Meeting in
April and community information meeting in June, 2005. Discussions at the Landowner meeting revolved
around possible changes to the draft Precinct Plan relating to specific land
parcels, including the status of the woodlot; timing of construction of
Enterprise Boulevard; servicing allocation issues; potential mandating of
grade-related retail; access to the school site; and, status of appeal of Area
Specific Development Charge By-law.
These discussions resulted in revisions to the Development Principles
(Appendix 1) and modifications to the Precinct Plan.
Specifically,
changes to the original draft document supported by staff include removing
residential allotment on a portion of the school site next to Co-operators, amending
the office boundaries south of the GO access road to reflect recent zoning
amendments, deleting the site specific place of worship use in favour of a
general policy permission in the Development Principles, and removing the
southerly extension of the public road proposed through the Provincially-owned
lands. The Precinct Plan documents
attached as Figures 1 and 2 reflect these changes.
In conjunction with
the design of the
Servicing report has been Prepared
As part of
the overall design process for the construction of
An Environmental Assessment for Storm Water
Management has been undertaken
In
September, 2004, an Environmental Study Report entitled South Unionville Storm
Water Management Facilities was prepared.
This report, which was filed in early 2005 and is now complete, outlines
storm water facility requirements to improve the quality of urban run-off and
attenuate run-off rates in order to minimize downstream erosion potential,
while having regard for baseflows that are conveyed
to Tributary 5 and the Rouge River. The
report recommends a number of measures which serve to divide lands within the
East Precinct into a number of catchment zones with
individual properties within the catchment zones
sharing future storm water facilities.
The zones with potential for shared facilities include lands north of
the extension of
The
reconfiguration of
Detailed
discussions were held with the community in the first half of 2005, regarding
associated streetscape improvements for
Current Applications in the East Precinct
Staff have
been involved in the processing of various development applications, including
the previously mentioned zoning amendments for the O
In
September, 2005, the York Region District School Board filed an application for
site plan approval for the
The Markham Centre Advisory Group has reviewed
the draft Precinct Plan
The Draft
Precinct Plan was presented to the Markham Centre Advisory Group in March,
2005. Overall, the Group rated the plan a Silver, with a rating on Green Infrastructure being
considered premature at this time. The
primary comment from the Advisory related to the need for a stronger retail
focus. The Precinct is somewhat isolated
from established and proposed retail areas and the Group felt that given the
projected population and the location of the high school additional attention
should be provided to the retail environment.
As noted previously, the plan contemplates that retail would most likely
be located in the base of buildings with particular emphasis placed on
providing retail within multi-use buildings oriented towards the future
extension of Enterprise Boulevard. Through the processing of individual
development applications staff will work with the applicants and Advisory Group
to ensure an appropriate mix of retail uses is provided.
Next Steps include a Public Information Meeting
It is
recommended that a public information meeting be held to provide the landowners
and local residents an opportunity to comment on the Precinct Plan. It is further recommended that notice for
this non-statutory meeting be consistent with that given for the open house in
the summer, with the boundaries
for circulation purposes being the greater of 120 metres or the limits of the
GO line to the West, Highway 7 to the north,
CONCLUSION:
The East
Precinct Plan helps to further the intent of the Markham Centre Secondary Plan
to create a mixed-use urban Town Centre.
Lands within the proposed Precinct Plan are ideally situated relative to
public transit (VIVA, YRT, GO, and future 407 Transitway)
to provide for the proposed densities beyond that originally contemplated in
the Secondary Plan. The targets need to
be considered in the perspective of creating a true, regional scale urban
centre, over an extended period of time.
Staff will be monitoring the targets in Markham Centre as development
proceeds, in this and other precincts, to ensure that infrastructure is
introduced in a timely fashion and statistics are kept current as actual
development levels are confirmed.
FINANCIAL CONSIDERATIONS:
There
are no financial implications for the Town at this time.
ACCESSIBILITY CONSIDERATIONS:
There
are no accessibility implications for the Town at this time.
ENVIRONMENTAL
CONSIDERATIONS:
Environmental considerations for the Town as
discussed in this report include the designated woodlot, future stormwater management ponds and Tributary 5.
ENGAGE 21ST
CONSIDERATIONS:
The proposal aligns with the following key Town
of
BUSINESS
UNITS CONSULTED AND AFFECTED:
Input from the Engineering
Department and Realty Services has been included in this report.
ATTACHMENTS:
Figure 1 – Precinct Plan
Description
Figure 2 – Precinct Plan Density
Allocation
Appendix 1 – Development Principles
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Director
of Planning & Urban Design |
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Jim Baird,
M.C.I.P., R.P.P. Commissioner
of Development Services |
Q:\Development\Planning\Teams\Markham
Centre\Coordinator\East Precinct\Reports\East Precinct - DSC Final
Recommendation Report.doc
Appendix
1
DRAFT
EAST PRECINCT – DEVELOPMENT
PRINCIPLES
Land Use and Urban Design:
Development shall be
consistent with the Markham Centre vision which features higher densities, mixed
land uses, active pedestrian orientation, a grid road network, a high level of
urban design and respect for the
Development shall contribute to the urban
character of Markham Centre through high quality architecture and multi-story
buildings that contain active and pedestrian scaled uses at grade. Buildings should be sited to address public
streets with front doors, animated facades and a minimal building setback.
At-grade retail within the base of
buildings will be encouraged along
The lands shall be developed with a mix of
land uses, consistent with the policies of the Secondary Plan (OPA 21).
Piecemeal development will be discouraged;
consolidation of individual parcels to enable comprehensive development,
capable of meeting these principles, will be encouraged.
Development shall provide for a
well-defined pedestrian network within the public street grid and pedestrian
supportive ground floors and connectivity within the private realm.
Building heights shall
be in accordance with the policies of the Markham Centre Secondary Plan (OPA 21),
and generally consist of 6 – 8 storey buildings. Heights up to 13 storeys (office module) may
be considered within the landmark locations on the plan. High-rise residential buildings may have a
height in metres equivalent to that which could be achieved under the maximum
number of storeys permitted for an office building module. Council may deem it appropriate for a
building or buildings to exceed the maximum general heights without an
amendment to the Secondary Plan, provided the purpose and intent of the
Secondary Plan are met.
For the purpose of the Precinct Plan, “Net Site Area” refers to the contiguous area of the development parcel, exclusive of lands intended for environmental protection, parks, stormwater management facilities, schools and public roads.
- Residential densities are anticipated to a maximum of 2.5 F.S.I. on a net site basis
- Office densities are anticipated to a maximum of 1.5 F.S.I. on
a net site basis
Surface parking shall be minimized and
screened from public view; structured parking and underground parking shall be
encouraged. Surface parking should not be placed between the building and the
street line.
The Town may identify and acquire strategic lands within the East Precinct to implement the Markham Centre Parking Strategy.
The Town recognizes that a future 407 Transitway station will be provided on the MTO lands. Redevelopment of the GO Transit and MTO lands for office/business park uses, including parking structures, is a future option. In the interim, it is recognized that additional surface parking lots may be required to accommodate commuter parking demand and that this could take the form of a joint venture between the two parties and possibly the Town.
Street System:
Additional roads will be introduced at the time of development of individual blocks within the plan.
Development shall create new local streets in a
connected grid format. Intersections
where internal roads connect to
The street system shall facilitate a high level of
pedestrian amenity, bicycle use and quality streetscape design.
The street system shall facilitate phasing
of development.
The design of streets shall take advantage of all
available Alternative Development Standards for municipal infrastructure and
incorporate the Markham Centre Streetscape Guidelines.
Streets shall provide opportunities for
on-street parking.
Consideration may be
given to including private condominium roads as part of the local road network if
there is a seamless transition with the public road network and provided they are
designed and function as the equivalent of a public road, and all of the Town’s
operation criteria are otherwise met.
The proposed ring road connection through the MTO and GO Transit lands may
occur in conjunction with intensification of these lands for office use. In the interim, the internal road identified
to be provided through the O
Access to
Pending completion of the final road pattern within the plan area, and subject
to detailed traffic analysis, Council may consider interim access options for
the High School site, subject to access and other design issues being addressed
to the satisfaction of the Town and other authorized agencies.
Access drives to individual development blocks may cross the north/south
linear landscape strip on the west side of the north/south
street.
Parks & Open Space:
Open spaces within the plan should maximize exposure
and visibility of the
Development should provide for public
enjoyment and accessibility to the
The public enjoyment and use of the
Parks and open space planning should implement
the Markham Centre Greenlands Plan.
The existing woodlot should be protected within
a public parkland setting.
Parks and parkettes are to be provided at a higher level of finish
per the Markham Centre parkland strategy.
A linear landscaped
connection on the west side of the new north/south street should provide the
primary pedestrian linkage between the GO Transit and YMCA properties with the
centralized neighbourhood park, the woodlot, high school site and Rouge River
Valley.
Stormwater Management Ponds:
Stormwater facilities should
contribute positively to the overall landscape character of the precinct and
Place of Worship:
A place of worship
shall be located within the plan area and may be provided in an alternative
format such as within a mixed-use