Report to: Development Services Committee Report Date: June 26, 2007

SUBJECT: RECOMMENDATION REPORT

Mobius Corp.

Applications for Site Plan Approval to permit commercial developments on the east side of Markham Road, north and south of Karachi Drive

File Nos: SC 06 129362 & SC 06 129667

PREPARED BY: Sabrina Bordone, Planner, ext. 8230

East District Team

RECOMMENDATION:

That the report dated June 26, 2007, entitled “Applications for Site Plan Approval to permit commercial developments on the east side of Markham Road, north and south of Karachi Drive” be received;

That the Site Plan Applications (File Nos: SC 06 129362 & SC 06 129667) submitted by Mobius Corp. to permit commercial developments on the east side of Markham Road, north and south of Karachi Drive, be endorsed in principle, subject to the conditions attached as Appendix ‘A’.

That the site plan approval be delegated to the Director of Planning and Urban Design or her designate, to be issued following execution of a site plan agreement. Site Plan Approval is issued only when the Director has signed the site plan.

EXECUTIVE SUMMARY:

Mobius Corp. has submitted two site plan applications to permit commercial developments on the east side of Markham Road, between New Delhi Drive and Kirkham Road (Figures 1 – 4). The subject lands are within the community focus area identified in the Markham Road Corridor Study adopted by Council in June, 2003 and are intended to accommodate the commercial component of this focus area due to proximity and visibility from Markham Road. The location of the “Main Street” envisioned in this area has evolved over time and the east west portion of New Delhi Drive is now considered the most appropriate location for the Main Street, as discussed with Development Services Committee in a Part ‘A’ work session on May 22, 2007.

A total of fifteen commercial condominium buildings, comprised of 208 units ranging in size from 43.5 m² (468 ft²) to 124 m² (1335 ft²) are proposed (Figures 5 & 6). The proposed buildings fronting onto Markham Road, Kirkham Road and the east-west portion of New Delhi Drive will be two storey in height with the buildings on Karachi Drive and the north-south portion of New Delhi Drive being one storey. An additional half storey height is provided at the immediate corner of Markham Road and New Delhi Drive to enhance the entrance to the ‘Main Street’. With the exception of one building at a non critical location, the proposed buildings all have back to back units creating unit frontages on both the street and the parking lot. These back to back units address concerns regarding through units and the potential impact of “backs” facing the public street. Within the two-storey high buildings only the units facing the public streets will have a true second storey (shown shaded in Figures 5 & 6) to contain office uses, while the units facing the interior parking lot will have high ceilings with no upper floor.

It is felt that the two sites, located to the north and south of Karachi Drive, should be viewed and treated as one shopping centre. The Town’s transportation Division, having reviewed the matter, has advised that movement of vehicular and pedestrian traffic between the two sites is not of concern and can be achieved without significant difficulty.

Based on the Parking By-Law provisions which apply a standard of 1 space per 18.5 square metres to the entire shopping centre, there is a parking deficiency of 135 spaces on Site C and a surplus of 19 spaces on site “B” for a combined deficiency of 116 spaces. However, it is felt that the parking standard (1 parking space per 22 square metres) applied to retail space within the Armadale shopping centre to the northeast, across Markham Road, could be applied, together with the reduced parking standard of one space per 30 square metres for second storey office applied elsewhere in the Town, to encourage second storey office use. Application of these standards would result in site “B” to the north of Karachi Drive having a surplus of 86 parking spaces and site “C” to the south would having a deficiency of 55 spaces, for a combined surplus of 31 spaces. In addition, approximately 11 or 12 on street lay-by parking spaces are also available. A parking study has been initiated to review parking requirements for the proposed development, as staff acknowledge that the Armadale shopping centre with a number of larger retail uses is somewhat different from the proposed shopping centre containing smaller condominium units. A minor variance application to address the parking shortfall will be submitted to the Committee of Adjustment, and in a condition of site plan approval.

The proposal was presented to Development Services Committee on May 22, 2007 in a ‘Part A’ presentation. The applicant has either commented on or addressed certain matters raised by members of Committee:

· The applicant is not prepared to add residential uses or additional office space along the new Main Street, but will provide additional height and massing at the corner of Markham Road and New Delhi Drive to reinforce this entrance area.

· The applicant is marketing to the south-east Asian community and feels a cultural ‘theme’ will come through in the final uses of the units and in the signage.

· The applicant notes that marketing has been very successful and that their marketing agent does not anticipate any issues with the sale or long term viability of units fronting on New Delhi Drive.

· The applicant has revised the landscape plans to introduce some additional soft landscaping (trees) and permeable paving (along pedestrian pathways) within the sites. Any additional landscaping will have to be balanced with parking needs.

· The applicant has provided improved pedestrian connectivity between and within the two sites and has incorporated on site furniture, specifically benches and bicycle racks, to encourage pedestrian and cycling activities.

As a result of the significant drop in grade between Markham Road and New Delhi Drive stairs are proposed at various locations within the site and these stairs, particularly when there are more than two or three risers, are not conducive to good pedestrian movement. There have also been some concerns regarding the ease of accessibility to the stores for the physically disabled and for wheel chairs. Staff will continue to work with the applicant to address this issue prior to final site plan approval.

The proposed development complies with Secondary Plan policies and, with the exception of noted variances, complies with the Major Commercial (MJC) zoning of the lands. Staff is generally satisfied with the proposed site plan and building elevations and feel that the applications can be supported subject to the conditions outlined in Appendix ‘A’. The matters detailed in this report, particularly those with regard to parking spaces and grading, will have to be addressed to staff’s satisfaction prior to the Director of Planning & Urban Design signing-off on the final plans.

FINANCIAL CONSIDERATIONS:

Not applicable

The subject lands are situated on the east side of Markham Road, on the north and south sides of Karachi Drive, within the Community Focus Area identified in the Markham Road Corridor Study (see discussion below) (Figures 1 - 4). The site to the north side of Karachi Drive (referred to as site “B”) is approximately 2.4 ha. (5.9 ac) in area and the site to the south of Karachi Drive (referred to as site “C”) has an area of approximately 2.1 ha (5.3 ac) (The Costco site in the vicinity, noted below, was previously referred to as site “A”) (Figure 4). The subject lands are presently vacant with no significant vegetation.

To the north, across Kirkham Drive, is a gas station and to the northeast is a retail warehouse use (Home Depot). To the east, across New Delhi Drive, is another retail warehouse use (Costco – referred to as site “A” in a previous related subdivision application) and Town owned lands intended for a future community centre and related purposes. To the south, across New Delhi Drive, are vacant lands designated Community Amenity Area in the local Secondary Plan and is expected to be developed with a multi-storey residential/commercial mixed use building. Finally, to the west, across Markham Road, is a vacant commercial site, a four storey apartment building, and a recently approved place of worship, which is currently under construction (Figure 2 and Figure 3).

Proposal is for commercial developments comprised of retail units and offices

Mobius Corp. has submitted site plan applications to develop both sites with commercial buildings that will be comprised primarily of retail units and some offices. The following is a brief development summary of both sites.

Site B – North Side

Site “B”, north of Karachi Drive, will include six commercial buildings with a total of 97 units (see Figure 5). Four of the proposed buildings will be one-storey in height with retail units ranging in size from approximately 43.5 m² (468 ft²) to 95.8 m² (1031 ft²). Two of the proposed buildings will be two-storey in height and are meant to provide additional height and massing at the intersection of Markham Road and Kirkham Drive. Within the two-storey high buildings only the units facing the public streets will have actual two stories containing office uses (shown shaded in Figure 4). These two-storey units range in size from approximately 100 m² (1076 ft²) to 124 m² (1335 ft²). Within these buildings the units facing the interior parking lot will have high ceilings with no upper floor and will have unit sizes similar to those in the single storey buildings.

Of the four single storey buildings only one will house thru-units (Building “B2”) and this building will face the interior parking lot as well as the Costco parking lot to the east across new Delhi Drive. The remaining three buildings will have of back-to-back units, with each unit having a single entrance, and one row of units facing a public street.

This site will have access from both New Delhi Drive to the east and Karachi Drive to the south. A total of 379 surface parking spaces have been provided on site; whereas, the Parking By-law requires a total of 360 parking spaces for this development. This represents a surplus of 19 spaces.

Site C – South Side

Site “C”, south of Karachi Drive, will be comprised of nine commercial buildings with a total of 111 units (Figure 6). Four of the proposed buildings, all along Karachi Drive, will be one-storey in height and will be comprised of units with sizes similar to those in the single storey buildings to the north within site “B”. Five of the proposed buildings will be at least two-storey in height, located along the east-west portion of New Delhi Drive and Markham Road, and are intended to provide additional height and massing along these roads. A further half storey height is provided at the immediate corner of Markham Road and New Delhi Drive to enhance the entrance to the ‘Main Street’. Again, the configuration and unit sizes within these two-storey buildings are similar to those in the two-storey buildings within site “B” to the north, with the units with two floors facing the public street. All of the buildings proposed for site “C” will be comprised of back-to-back units, with each unit having a single entrance.

The site will have access from both Karachi Drive to the north and New Delhi Drive to the south. A total of 271 surface parking spaces have been provided on site; whereas, the Parking By-law requires a total of 406 parking spaces for this development. This represents a deficit of 135 spaces. The applicant will be submitting a parking study and a minor variance application requesting a reduction in the required number of parking spaces provided on-site (see discussion below).

Official Plan and Zoning

The Armadale Secondary Plan (through OPA 125) designates the subject lands Community Amenity Area. The intention of this designation is to provide for a multi-use, multi-purpose centre offering a diverse range of retail, service, community, institutional and recreational uses serving several nearby residential and/or business areas. The designation provides for the proposed land uses (retail, service, and offices uses), subject to good urban design considerations.

The subject lands are zoned Major Commercial (MJC) under By-law 177-96, as amended. With certain exceptions noted in this report, the proposed development complies with the current zoning. The zoning for both Site B and Site C include a Hold provision. Removal of this hold is subject to, amongst other things, execution of a subdivision and/or site plan agreement.

Markham Road Corridor Study

The urban design vision for the Markham Road corridor between 14^th Avenue and Steeles Avenue was adopted by Council in June, 2003, following completion of the Markham Road Corridor Study. The urban design vision, developed by Brook McIlroy Inc, includes a concept for the development of a community focus in the area of Markham Road between Highglen Avenue and Golden Avenue. Anchored by the Markham Road/Golden Avenue intersection, the proposed Community Focus Area extends eastward from Markham Road to the rail line and includes the lands between Kirkham Drive and the existing stormwater management ponds to the south. The Community Focus Area was envisaged to develop with a mix of commercial, residential and community/recreational land uses. The subject lands form the commercial component of this Community Focus Area due to its proximity and visibility from Markham Road. The study calls for building placement close to the street edge with parking located within the interior of the site. Multi-storey buildings are also encouraged in the study, particularly at intersections and, if necessary, the appearance of multi-storeys is recommended through the use of architectural treatments. The vision for the community focus area has included a “Main Street” with buildings designed to accommodate residential uses as well as small businesses serving the local neighbourhood, such as restaurants, personal services, and professional offices.

New Delhi Drive as new ‘Main Street’ within the Community Focus Area

At the May 22, 2007 Development Services Committee (DSC) Meeting (Part A), staff outlined the history of the Markham Road Corridor Study and the evolution of the ‘Main Street’ within the Community Focus Area identified in that Study. Staff noted that as a result of certain significant shortcomings of Karachi Drive as a Main Street, including the restricted access from Markham Road and the lack of any direct links to residential uses, it is now felt that the east west portion of New Delhi Drive was the most appropriate location for the Main Street in the area (Figure 4).

A New Delhi Drive ‘Main Street’ would have a signalized access from Markham Road; it would terminate at a future Community Centre which could be designed to enhance the Main Street; it would allow the opportunity to take advantage of existing storm water management ponds to the southeast through linking pathways and landscaping; and it could link the Main Street through an enhanced Golden Avenue to the Armadale Community and public open spaces to the west. In addition, a New Delhi Drive ‘Main Street’ would also provide the opportunity to work with the adjacent landowner to the south to develop residential uses fronting on that street.

The new concept for the New Delhi ‘Main Street’ was developed during the review of the subject site plan applications. As a result, staff worked with the applicant to refocus their development within site ‘C’ to address the new ‘Main Street’.

Minor Variance Application is required for parking and other deficiencies

As previously stated, there is a parking by-law deficiency of 135 spaces on Site C and a surplus of 19 spaces on site “B”. However, for the purposes of parking calculations it is felt that both sites “B” and “C” can be reviewed together as one shopping complex. Staff of the Town’s Transportation Division, having reviewed the traffic volume and anticipated speed of traffic on Karachi Drive, as well as factors such as the restricted access at Markham Road, short block length and the stop signs at New Delhi Drive, have advised that movement of vehicular and pedestrian traffic between the two sites is not of concern and can be achieved without significant difficulty. They have also advised that once the two shopping centers are built and occupied they will monitor the cross traffic and, if necessary, additional measures to reduce any conflicts can be considered.

When taking into consideration the total number of parking spaces provided for both sites, the overall parking by-law deficiency is 116 spaces (total number of parking spaces provided for both sites is 650; whereas, the total number of required parking spaces is 766). This represents an overall deficiency of approximately 15%.

However, the noted deficiencies are based on the By-law standard of 1 parking space per 18.5 square metres of leasable floor area for the entire plaza. It is felt that the current standard may be too restrictive for large shopping centres and staff are currently in the process of initiating a review of this standard to determine its appropriateness. Based on a site specific parking study, the Armadale plaza to the north-west, across Markham Road, was developed with a parking standard of 1 parking space per 22 square metres for retail uses. That shopping centre also has reduced parking standards for office uses. In addition, given that restaurant uses tend to generate significant parking demand, the amount of restaurant floor area within that site was effectively limited to a maximum of 15% of the total floor area of the shopping centre. That shopping centre, since construction was completed several years ago, has been operating without any parking difficulties.

It is felt that the 1 space per 22 square metre standard applied at the Armadale shopping centre could be applied to the retail space within the subject sites. Also, in keeping with past practice of allowing a reduced parking standard for second storey office space (employed to encourage second storey offices within shopping centres) it is felt that a standard of 1 parking space per 30 square metres could be applied to all second storey offices. If these standards are applied to this proposal, site “B” to the north of Karachi Drive would have a surplus of 86 parking spaces and site “C” to the south would have a deficiency of 55 spaces for a combined surplus of 31 spaces. In addition, lay-by parking, accommodating approximately 11 or 12 vehicles, is provided on the north and south sides of Karachi Drive. Staff is also exploring the feasibility of providing a similar number of lay-bay parking spaces along the south side of site “C”, on New Delhi Drive.

It is acknowledged that the Armadale shopping centre with a number of larger retail uses is somewhat different from the proposed shopping centre containing smaller condominium units. A parking study has been requested by staff and initiated by the applicant to review parking requirements for the proposed development. The applicant has been advised that once the parking study is submitted, and if parking is determined to be an issue, staff will work with the applicant to restrict the amount of restaurant floor space within the shopping centre as well as reduce the overall floor area to reduce the parking requirement to manageable levels.

A minor variance application to address the parking shortfall will be submitted to the Committee of Adjustment. The amount of reduction to be supported will be determined as discussed above, including consideration of the required parking study.

The applicant will also be submitting a minor variance application to deal with other deficiencies that were identified in the zoning review of the site plan applications. These include: reduced lot area and lot frontage (both are existing situations), reduction of building height along Karachi Drive from eight metres to six metres, and elimination of loading space requirements (a typical variance in shopping centres containing small units). The deficiencies with regard to minimum height and loading spaces have been reviewed by staff and were found to be acceptable in light of the desire to achieve a Main Street along New Delhi Drive as discussed below.

The applicant has responded to certain matters raised by Members of Council

At the May 22, 2007 Development Services Committee meeting, following staff’s presentation on the proposed new Main Street, the applicant presented the subject development proposal. At that time members of Committee raised certain matters which have been addressed by the applicant as follows:

Explore the feasibility of adding some residential uses near the proposed ‘Main Street’ or transfer some office density from site ‘B’ to the Main Street

The applicant has indicated their position that they are commercial developers and that they are not prepared to go through the process necessary to add residential uses to this development. They have also advised that additional office space is not feasible for two reasons. First, site ‘C’ already has limited parking and additional office space would make that situation worse. Second, the applicant’s real estate agent has advised that leasing / selling of third storey office space is very difficult in this market area. However, the applicant has advised that they are agreeable to provide an additional half storey height and massing at the immediate corner of Markham Road and New Delhi Drive to reinforce this entrance to the main street. Drawings to reflect this change will be submitted shortly.

Consideration of a south or southeast Asian theme for the shopping centre

The applicant has advised that they are marketing to the south east Asian community and that unit sizes and marketing material have been specifically designed for that purpose. The applicant is of the opinion that the south east Asian ‘theme’ will come through in the final uses of the units and in the signage.

Concern that uses in the units fronting onto New Delhi Drive will not be economically viable without parking along the street

The applicant has indicated that marketing of units within this shopping centre has been very successful to date and that they do not anticipate any issues with the sale or long term viability of these units fronting on New Delhi Drive. The applicant has advised that their marketing agent has confirmed this view.

Nevertheless, the applicant has indicated that they would be very interested in accommodating lay-by parking along New Delhi Drive if it is determined to be feasible, subject to the costs involved. As noted above, staff is continuing to explore the feasibility of such lay-by parking, and any requirement for lay-by parking and associated costs will be addressed in the site plan agreement. A condition to this effect is included in Appendix ‘A’.

Investigation of the feasibility of additional soft landscaping and permeable paving

Committee members had requested that the applicant explore the feasibility of providing additional soft landscaping (trees) and permeable paving within the sites. The applicant has revised the landscape plans to introduce some additional soft landscaping (trees) while minimizing the loss of parking spaces to achieve this objective. Once the parking study is available staff will review these matters with the applicant to balance the desire for additional landscaping with parking requirements. The applicant has also incorporated permeable pavers in the pedestrian walkways through the parking areas.

Greater pedestrian connectivity within and between the two sites

The applicant has enhanced the pedestrian connectivity between and within the two sites, as suggested by members of Committee, by incorporating pedestrian walkways through the parking areas. The pathways within the parking areas are delineated wherever possible by the use of permeable pavers. Staff, with regard to pedestrian safety, has asked that the plans be modified to direct pedestrian traffic between the two sites through the intersection area of New Delhi Drive and Karachi Drive. The applicant has also incorporated on site furniture, specifically benches and bicycle racks, to encourage pedestrian and cycling movements to and within the site.

Grading requires further review in consultation with the applicant

For the design and layout of the subject sites, the applicant has struggled somewhat to address the significant drop in grade from Markham Road to the recently constructed New Delhi Drive. As a result of this drop in grade the applicant has incorporated stairs from certain public streets /sidewalks to the store fronts and these stairs, particularly when there are more than two or three risers, are not conducive to good pedestrian movement. There have also been some concerns regarding the ease of accessibility to the stores for the physically disabled and for wheel chairs. In consultation with staff, the applicant is working with their architect and civil engineer to ensure that the store front sidewalk along the various buildings is fully accessible for all customers. Similarly, work is ongoing to eliminate or at least reduce the number of stairs from the public sidewalks to the storefront private sidewalk, particularly along the proposed new ‘Main Street’. The conditions of approval require all grading and floor elevation details to be provided in the landscape plans. The grading issues will have to be addressed to staff’s satisfaction prior to the Director of Planning and Urban Design signing off on the endorsed plans.

Site Plan and Building Elevations are considered acceptable subject to certain matters to be finalized

The proposed development incorporates two storey buildings at appropriate locations, along Markham Road and the proposed main Street in particular, providing the balance of strong streetscape presence and pedestrian friendly scale envisioned in the Markham Corridor Study. A further half storey height is provided at the immediate corner of Markham Road and New Delhi Drive to enhance the entrance to the ‘Main Street’. Unit frontages along all key public streets will help to generate pedestrian activity along these streets. The introduction of back to back units within the majority of buildings also addresses prevailing concerns regarding through units and the visual impact of such units on streetscapes.

Each site is proposed to have two full moves accesses, one each from Karachi Drive and New Delhi Drive. The proposed accesses off of Karachi Drive for both sites have been aligned in order to strengthen vehicular connectivity between the two sites. Sidewalks and walkways have been provided for along the perimeters of the proposed buildings, and through the parking areas at appropriate locations, so as to strengthen pedestrian access to the buildings. Staff, with regard to pedestrian safety, has asked that the plans be modified to direct pedestrian traffic between the two sites through the intersection area of New Delhi Drive and Karachi Drive. Patios have been provided adjacent to some of the proposed units in an attempt to animate the streetscape wherever possible. In addition, enhanced lighting will be provided between adjacent buildings to ensure safety. It is felt that all of these features will together promote an active pedestrian environment within each site, as well as in the shopping centre as a whole.

While buildings occupy much of the street frontages, there are significant gaps between buildings along Markham Road and the north-south leg of New Delhi Drive. Grade differences and landscaping will address the screening of parking areas viewed from the north-south portion of New Delhi Drive. Along Markham Road, staff has requested that a low wall be provided between the buildings in addition to soft landscaping for appropriate screening of the parking.

The applicant has worked with staff to create building designs that incorporate a number of design elements, such as store front fabric awnings, along all parking lot and street elevations, to achieve a visually cohesive development. Appropriate cornice treatments and wall surface articulation help to provide balanced facades. The building materials proposed for all buildings will consist of masonry piers and E.I.F.S., which is a form of synthetic stucco. Earth tone building colours of red-brown and buff have been proposed with accent colours provided in the signage bands (Figure 7). Staff will continue to work with the applicant to fine tune the elevations. Given the large number of buildings, only typical elevations of the proposed buildings are included in Figures 7 – 9.

The elevations show the proposed sign locations on buildings. The amount of signage at the site will be controlled through the sign by-law. However, staff will ensure that the site plan agreement as well as the future condominium agreement will address the objective of consistent signage throughout this development.

Conclusion

Staff feels that the proposed site plan and elevations drawings can be supported subject to the matters detailed in this report, and recommend that they be endorsed in principle subject to the conditions attached in Appendix ‘A’. The outstanding matters, particularly those with regard to parking and grading, will have to be resolved to staff’s satisfaction prior to the Director of Planning & Urban Design signing-off on the endorsed plans.

FINANCIAL TEMPLATE (external link):