Report to: Development Services Committee Report Date: March 2, 2010

SUBJECT: Information Report: Draft Official Plan Amendment and New Secondary Plan for the Langstaff Portion of the Richmond Hill/Langstaff Gateway Urban Growth Centre

PREPARED BY: Dave Miller, MCIP, RPP Senior Project Coordinator ext. 4960

RECOMMENDATION:

1) That the report entitled “Information Report: Draft Official Plan Amendment and New Secondary Plan for the Langstaff Portion of the Richmond Hill/Langstaff Gateway Urban Growth Centre” be received;

2) That staff report back to Development Services Committee, following the Statutory Public Meeting scheduled for the evening of March 2, 2010, to further refine the draft proposed Official Plan and draft Gateway New Secondary Plan for the Langstaff portion of the Richmond Hill/Langstaff Urban Growth Centre;

3) And that Staff be authorized and directed to do all things necessary to give effect to this resolution.

EXECUTIVE SUMMARY:

The purpose of this report is to provide Development Services Committee with an update regarding a draft Official Plan amendment and new Secondary Plan for the Langstaff Portion of the Richmond Hill/Langstaff Gateway Urban Growth Centre. The draft Official Plan amendment and Secondary Plan are attached as Appendix ‘A’, the Transportation study is attached as Appendix ‘B’, and the draft Servicing report is attached as Appendix ‘C’, to this report.

In May of 2008 the Town embarked on a process to create a new Master Plan for the Langstaff area. In December 2009 Development Service Committee received and endorsed the Langstaff Land Use & Built Form Master Plan, prepared by Calthorpe Associates and Ferris + Associates dated October 2009, as the basis for amendments to the Official Plan and a new Secondary Plan for the Langstaff area. The Master Plan contemplates a variety of densities and uses connected to a central green spine that links Pomona Mills Creek to the Langstaff Woodlot. The central spine main streets will be active locations supporting a mix of retail, service commercial and civic uses to serve both residents and employees.

At the December 14^th, 2009 Development Services Committee meeting it was recommended to Council that staff be authorized to schedule a Public Meeting to consider the draft Official Plan amendment and proposed new Secondary Plan. These documents have been drafted based on the Land Use & Built Form Master Plan, dated October 2009, the associated technical background transportation and servicing reports, and discussions with the public, landowners, agencies, departments, adjacent municipalities and York Region.

The Official Plan amendment creates a new Planning District, the Langstaff Gateway Planning District. Together the Official Pan amendment and new Secondary Plan implement the vision of the Land Use and Built Form Master Plan, prepared by Calthorpe Associates and Ferris + Associates, dated October 2009. Additional refinements, based on discussions with the public, landowners, agencies, departments, adjacent municipalities and York Region, have also been incorporated into the draft amendments.

The proposed Official Plan amendment and new Secondary Plan provide for a compact, complete, integrated, sustainable, vibrant and well designed high density urban centre that will serve as a portion of the Regional Centre and the Richmond Hill/Langstaff Gateway Urban Growth Centre. At full build out the Secondary Plan contemplates an ultimate population of potentially as many as 32,000 residents (15,000 dwelling units) and 15,000 jobs. The Secondary Plan contemplates and allows for a variety of densities and uses in a sustainable form connected to a central green spine that links existing open spaces (Pomona Mills Creek to the Langstaff Woodlot), transit, retail, employment, civic and residential uses. The development is intended to be a complete and integrated community of pedestrian and transit oriented development with a mix of land uses, including commercial, cultural, institutional, office, open space, recreational, residential, and retail.

The proposed amendments will provide for the land uses, built form, and infrastructure to be constructed in three phases over many years. Each phase is tied to benchmarks and triggers, such as the Yonge subway and demonstrated modal split targets and includes requirements to provide space for community facilities, employment, retail, services and infrastructure to ensure that the elements to create a complete community are included at every stage of development.

Development Services Commission staff are continuing to work on refinements to the draft Official Plan amendment and new Secondary Plan. These refinements are based on ongoing review of the Official Plan amendment and new Secondary Plan with staff and external agencies and municipalities, including the Regional and inter-municipal planning process.

The Public Meeting has been scheduled for the evening of Tuesday March 2^nd, 2010. Staff recommend that the Official Plan amendment and new Secondary Plan be referred back to staff to provide a follow-up report including final recommendations to Development Services Committee.

Infrastructure, such as roads, services, transit concourse and local transit circulator system to support the development, is required. Options for funding include Development Charges, Developer Group Agreements, and the use of Planning Act tools such as a Section 37 Zoning By-law to achieve provision of community benefits, facilities and services or contribution in kind, in return for the increased height and density being proposed in the Master Plan and the Secondary Plan. New and innovative financial tools and models to ensure that development pays for itself are also being explored.

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 Development Services Committee with an update regarding a draft Official Plan amendment and new Secondary Plan for the Langstaff Portion of the Richmond Hill/Langstaff Gateway Urban Growth Centre. A draft of the proposed Official Plan and Secondary Plan amendments, and supporting Transportation and draft Servicing reports are attached to this report. The draft Official Plan amendment and Secondary Plan were released for public review and comment on February 11, 2010.

The draft Official Plan amendment and Secondary Plan are attached as Appendix ‘A’, the Transportation report is attached as Appendix ‘B’, and the draft Servicing report is attached as Appendix ‘C’, to this report.

The statutory Public Meeting to consider the Official Plan and new Secondary Plan is scheduled for the evening of Tuesday March 2^nd, 2010.

BACKGROUND:

Location/Area Context

The planning area is bounded to the north by Highway 407 and Langstaff Road, to the south by the Holy Cross Cemetery, to the east by Bayview Avenue, and to the west by Yonge Street. The Langstaff Gateway area is approximately 47 hectares (116 acres). The western portion, between Yonge Street and the Canadian National railway (CNR) tracks, is approximately 17 hectares (42 acres). Pomona Mills Creek, a tributary of the East Branch of the Don River, bisects this portion of the site, and there is a significant woodlot at the east end of the site. The area is isolated and somewhat disconnected from surrounding land uses in the Thornhill community, Richmond Hill and Vaughan by major arterial roads and highways, a hydro corridor, and a private cemetery.

The Langstaff area forms the south part of the Richmond Hill/Langstaff Gateway Urban Growth Centre, as identified by the Province in its 2006 Growth Plan for the Greater Golden Horseshoe, and has been identified as part of a Regional Centre in the new Region of York Official Plan. The Richmond Hill/Langstaff Gateway Urban Growth Centre is comprised of two parts, one located in Markham and the other in Richmond Hill. The two parts are separated by Highways 7 and 407, and a major hydro corridor.

Master Plan process was completed in the fall of 2009

In May of 2008 the Town embarked on a process to create a new Master Plan for the Langstaff area. In December 2009 Development Service Committee received and endorsed the Langstaff Land Use & Built Form Master Plan, prepared by Calthorpe Associates and Ferris + Associates dated October 2009, as the basis for amendments to the Official Plan and a new Secondary Plan for the Langstaff area. (The Land Use & Built Form Master Plan, dated October 2009 is attached as Appendix ‘A’ to a report to Development Services Committee entitled “Langstaff Gateway Land Use & Built Form Master Plan and proposed Official Plan and Secondary Plan Amendment” dated Dec 14^th 2009.”)

The Master Plan contemplates a high density mixed use plan along a central spine

The Master Plan contemplates a variety of densities and uses connected to a central green spine that links Pomona Mills Creek to the Langstaff Woodlot. The central spine main streets will be active locations supporting a mix of retail, service commercial and civic uses to serve both residents and employees. The fine grain grid network of streets will provide bicycle, pedestrian and transit friendly connections to the GO station, the future Yonge subway and the mobility hub in the Richmond Hill portion of the Urban Growth Centre. A linear concourse is proposed under Highway 407, to connect Langstaff and Richmond Hill, adjacent to the CN rail line, integrating the proposed subway, the proposed 407 Transitway, GO Transit, and the VIVA and YRT bus network.

Comments on the Langstaff Land Use & Built Form Master Plan

In the fall of 2009 the Land Use & Built Form Master Plan report was released to the public and agencies for comment. Stakeholders were invited to comment on the Langstaff Land Use & Built Form Master Plan, dated October 2009. Comments were received from York Region, Richmond Hill, York Region Transit, the Holy Cross Cemetery, and two individuals. These comments are attached as Appendix ‘D’, and are summarized in Table 1 attached. These comments, and comments received on the draft Official Plan amendment and new Secondary Plan will be addressed in a future report when the Official Plan amendment and Secondary Plan.

Public consultation regarding the Master Plan and the proposed Official Plan amendment and new Secondary Plan is ongoing

Notice of the Public Meeting was given in the local papers, mailed to property owners in Langstaff and within 120 metres of Langstaff, and to everyone who had requested the Clerk to provide notice of meetings related to Langstaff.

Staff recommend that the Official Plan amendment and new Secondary Plan be referred back to staff to provide a follow-up report including final recommendations to Development Services Committee, following the March 2, 2010 statutory Public Meeting.

The proposed Official Plan amendment and the new Secondary Plan are based on the Land Use & Built Form Master Plan

The proposed Official Plan and Secondary Plan amendments are based on the Land Use & Built Form Master Plan, dated October 2009, the associated technical background transportation and servicing reports, and discussions with the public, landowners, agencies, departments, adjacent municipalities and York Region.

As Langstaff forms part of the only designated Urban Growth Centre that spans Municipal boundaries, it is imperative that planning efforts be coordinated. Consequently, since April of 2009 staff of Markham, Richmond Hill, Vaughan the Region of York and affected agencies have been discussing opportunities to create a cohesive and integrated Urban Growth Centre. Four teams of specialized staff were brought together, under the coordination of the Region, to examine specific planning and implementation issues related to the development of the Urban Growth Centre. The focus areas of the teams are:

1. Physical Infrastructure

2. Planning & Design

3. Community Facilities & Services

4. Financial Tools & Models.

The teams are developing short, medium and long term recommendations for the planning for the centre. This will include policy recommendations for inclusion in local Secondary Plans. It is anticipated that Regional staff will report to Regional Council early in the spring.

DISCUSSION:

Overview of the Official Plan amendment and the new Secondary Plan for the Langstaff Gateway Planning District

The Official Plan amendment creates a new Planning District, the Langstaff Gateway Planning District, and removes the lands from the Thornhill Planning District. Together the Official Pan amendment and new Secondary Plan implement the vision of the Land Use and Built Form Master Plan, prepared by Calthorpe Associates and Ferris + Associates, dated October 2009. Additional refinements, based on discussions with the public, landowners, agencies, departments, adjacent municipalities and York Region, have also been incorporated into the draft amendments. (Drafts of the Official Plan amendment and new Secondary Plan are attached, see Appendix ‘A’.)

To implement the vision of the Land Use and Built Form Master Plan the amendments revise the land use designations, changing them to primarily mix use within an Urban Growth Centre. The amendment also creates a new Secondary Plan, known as the Langstaff Gateway Planning area.

Holy Cross Cemetery is the subject of a technical amendment

This proposal also includes a separate technical amendment to the Thornhill Secondary Plan to remove the Langstaff Gateway Planning District from the Thornhill Secondary Plan Planning Area. Section 14 - Langstaff Development Area, of the Thornhill Secondary Plan contains provisions that relate to the Langstaff Gateway area and the Holy Cross cemetery. The provisions for the Langstaff Gateway area and the Cemetery are being separated so that the Langstaff Gateway can be removed from the Thornhill Secondary Plan and the status quo regarding the cemetery provisions maintained. It is for this reason only that the Holy Cross Cemetery has been identified as being subject to an amendment. The Cemetery lands do not form part of the Richmond Hill/Langstaff Urban Growth Centre, and are not proposed for redevelopment or intensification as part of the new Langstaff Master Plan.

The Secondary Plan provides for a complete community to serve as a portion of the Urban Growth Centre

At full build out the Secondary Plan contemplates an ultimate population of potentially as many as 32,000 residents (15,000 dwelling units) and 15,000 jobs.

The Secondary Plan contemplates and allows for a variety of densities and uses in a sustainable form connected to a central green spine that links existing open spaces (Pomona Mills Creek to the Langstaff Woodlot), transit, retail, employment, civic and residential uses.

The development is intended to be a complete and integrated community of pedestrian and transit oriented development with a mix of land uses, including commercial, cultural, institutional, office, open space, recreational, residential, and retail. The Secondary Plan is flexible with regards to these land uses and density. However, to ensure that the community is appropriately serviced and “livable” during all stages of development, the adequate provision of appropriate infrastructure and community facilities, coinciding with development is essential.

Three Phases of development are tied to benchmarks and triggers

These proposed amendments will provide for the land uses, built form, and infrastructure to be constructed in three phases over many years. Each phase is tied to benchmarks and triggers that include requirements to provide space for community facilities, employment, retail, services and infrastructure to ensure that the elements to create a complete community are included at every stage of development.

Phase one includes:

• Up to 5,000 residential units,

• Approximately 1,790 jobs,

• At least 21,600 m² of retail and service commercial floor space,

• At least 6,100 m² of community services and facilities (civic uses) floor space,

• At least 33,600 m² of office floor space, and

• Approximately 4.8 hectares (12 acres) of parks and open space

Key benchmarks for Phase one includes the restoration of Pomona Mills Creek and the dedication of the woodlot, a transit circulator connection to Richmond Hill, the Richmond Hill VIVA station, and completion of the Cedar Avenue underpass.

Phase two includes:

• Up to 3,650 residential units,

• Approximately 6,432 jobs,

• At least 20,300 m² of retail and service commercial floor space,

• At least 5,350 m² of community services and facilities (civic uses) floor space,

• At least 132,700 m² of office floor space, and

• 1.6 hectares (4 acres) of public parks and open space

Key benchmarks for advancement to Phase 2 include the extension and operation of the proposed Yonge Street subway line, the completion of an elementary school(s), to the satisfaction of the school boards. The construction of the north grade separated CN rail crossing may be advanced to Phase 2, in part to facilitate the GO Station location remaining in its current location when two-way all-day GO service is implemented.

Phase three includes:

• Up to 6,514 residential units,

• Approximately 6,365 jobs,

• At least 24,400 m² of retail and service commercial floor space,

• At least 1,775 m² of community services and facilities (civic uses) floor space,

• At least 126,555 m² of office floor space, and

• 0.5 hectares (1.24 acres) of public parks and open space

Key benchmarks for advancement to Phase three include, the completion of the Highway 407 Transitway, the CNR grade separated crossings. Note: the timing for the construction of the north grade separated crossing may be advanced to an earlier phase to facilitate the design and construction of the concourse. This will be determined through the precinct plans.

Approximately 14.5% of the lands are to be dedicated as parkland. A further approximate 11.5% (5.4 hectares) of open space, such as the valley land and multi-use trail, but not included as part of the parkland dedication will come to the Town.

There are other benchmarks that are being finalized. These include benchmarks related to servicing, infrastructure and internal and external road improvements, the provision of community services. These will be finalize and brought to Development Services Committee at a later date.

Sustainability and the Environment

Langstaff is envisioned as an ecologically designed, mixed use, pedestrian and transit oriented development designed to be at the leading edge of sustainable development practices. Consequently, the plan encourages the use of technologies and best practices in sustainable building, infrastructure and open space design, with an emphasis on air and water quality, water and energy efficiency and conservation, and efficient and innovative recycling and waste management practices.

Development in Langstaff will follow the Leadership in Energy and Environment Design (LEED) system, with refined standards for Langstaff that consider such things as, building geometry and size, materials, building orientation, efficiency, green roofs, automated waste and recycling collections systems, passive solar energy, bird friendly designs, lighting, and car and bike sharing.

To promote efficient use of water resources the Secondary Plan encourages grey-water recycling, rainwater harvesting and reuse, use of low flow fixtures, and water conserving irrigation practices. District heating and cooling is also required and is expected to be phased in with development.

Prior to development being approved the Town will develop a Sustainable Development Strategy to ensure that all development is consistent with the objectives of the Secondary Plan. The strategy will include:

• a framework and set of performance measure targets for the implementation of new green infrastructure technologies and best practices in sustainable building and open space design, with an emphasis on air and water quality, water and energy efficiency and conservation, and efficient recycling and waste management practices;

• a framework and set of targets to achieve a sustainable live/work balance, including:

- minimum affordable housing targets,

- resident to employee targets that contribute to a sustainable live–work balance, and

- identifying development control mechanisms, such as density transfers, incentive zoning, alternative parking standards, and the preparation of detailed Precinct Plans.

Precinct Plans

The Secondary plan creates three Precinct Plan areas (west, central and east) within the Langstaff area. Approval of development within these precincts will be conditional on the provision of a Precinct Plan and supporting studies, reports and plans to the Town. The documents to be provided in support of a Precinct Plan includes: a detailed land use and urban design concept, including built form and massing, a phasing justification and monitoring study, stormwater management and monitoring study, servicing implementation plan, affordable housing implementation strategy, an environmental impact study, and green development standards. The Precinct Plans are to be endorsed by Council prior to development approvals.

Additional work to be completed prior to adoption of Official Plan amendment and new Secondary Plan

Staff are recommending that the Official Plan Amendment and new Secondary Plan be referred to staff following the Public Meeting, so that the documents can be further refined to incorporate comments received from the public, agencies, local municipalities and senior levels of government. After the refinements to the Official Plan Amendment and new Secondary Plan have been incorporated, staff will bring forward a recommendation report for Development Services Committee’s consideration and recommendation to Council. York Region is the approval authority for the Official Plan Amendment and new Secondary Plan.

FINANCIAL CONSIDERATIONS AND TEMPLATE:

There are no direct financial impacts associated with this report. However, prior to and concurrent with development in the Urban Growth Centre/Regional Centre, significant amounts of expensive infrastructure, such as roads, services, transit concourse and local transit circulator system, will be required. Markham, Richmond Hill and the Region have all been exploring options for new innovative financial tools and models to ensure that the development pays for itself. Options include Development Charges, Developer Group Agreements, and the use of Planning Act tools such as a Section 37 Zoning By-law for the provision of community benefits, facilities and services or contribution in kind, in return for the increased height and density being proposed in the Master Plan and the Secondary Plan. The Town will also need to prepare an Operations and Maintenance manual. This manual will outline a strategy and procedures for the Community Services Commission regarding new standards for highly urbanized development, parks, community services and facilities in the Langstaff Gateway area.

HUMAN RESOURCES CONSIDERATIONS:

Not applicable.

ALIGNMENT WITH STRATEGIC PRIORITIES:

The development proposed and contemplated for in the Langstaff Gateway area will align with Council’s six areas of strategic focus. (Growth Management; Transportation/Transit; Environment; Parks, Recreation, Culture and Library Mater Plan, Public Safety; Municipal Services; and Diversity.)

BUSINESS UNITS CONSULTED AND AFFECTED:

Internal Departments, external agencies, adjoining municipalities, senior levels of government, transit service providers, and other stakeholders, have participated in the Master Plan process and are participating in the Official Plan amendment and Secondary Plan process.

RECOMMENDED

BY:

Valerie Shuttleworth, M.C.I.P., R.P.P.

Director of Planning & Urban Design

Jim Baird, M.C.I.P., R.P.P.

Commissioner of Development Services

ATTACHMENTS:

Figure 1 – Location Map

Table 1 – Master Plan Comment Summary

Appendix ‘A’ – Draft Official Plan amendment and Secondary Plan

Appendix ‘B’ – Transportation report

Appendix ‘C’ – Draft Servicing report

Appendix ‘D’ – Stakeholders Comments

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Table 1 - Master Plan Comment Summary
York Region	• Master Plan is generally consistent with the vision & policies for Regional Centres in the Regional Official Plan and the draft of the new Regional Official Plan • Phasing, staging & triggers are critical to ensure that complete neighbourhoods are created, including critical infrastructure, services and amenities, and employment opportunities • Plan to include a mix of uses with connectivity within Langstaff & with Richmond Hill • High urban standards for: urban design, built form, transit & services with a focus on non-auto modes of transportation, water & waste water • A circulator bus is critical to increasing the mode share • Phases to be based on specific performance based triggers & monitoring e.g. operational subway prior to additional beyond 5,000 units • A Regional Centre-wide transportation study will be required
Richmond Hill	Height and Density Concerned with: • proposed height and density and possible impact of density & traffic, and the connectivity of the site & direct higher order transit • walking distance to the mobility hub station • heights at the east end of the site adjacent to the woodlot • greatest density should be concentrated closer to Yonge St in proximity to the proposed Longbridge subway station & not around the CN corridor Balance of Proposed Land Uses • Regional Official Plan target of a 1:1 ratio for people to jobs is not being met Transit Facilities and Location • Densities within proximity to higher order transit should be within an acceptable “walk to” catchment area, rather than relying on a local circulator bus • Subway alignment ‘C’ was finalized and confirmed through the EA process Connectivity across the UGC • Connections between the two sides of the UGC should ensure the most efficient transit-user convenience possible. Town of RH staff support a connection between Langstaff & RH – the RH Preferred Concept Report recognizes a connection via the multi-use corridor and Cedar Ave. Further discussion on the operational, construction, maintenance of the concourse is required. Transportation Capacity & Mode Spit • The greater than 60% non-auto mode split is aggressive & questionable considering that half of the Langstaff site is beyond a 400 m walking distance from higher order transit & proposed mobility hub • The lack of ingress & egress opportunities given the number of people & jobs proposed could lead to unacceptable traffic conditions throughout the UGC • Appropriate traffic mitigation measures are required before Red Cedar is opened Triggers • Too much reliance on triggers to control development. The lands east of the CN rail line are not directly served by higher order transit & the circulator bus should not be relied on for the proposed density east of the tracks
York Region Transit	Many of the comments from YRT are technical in nature and are more appropriately dealt with at the detailed site planning stage. For example: • Bus bay lengths, locations, passenger standing areas, implementation of the circulator bus, walking distances to bus stops, • Stresses the importance of the concourse connection
Holy Cross Cemetery	Project Overview • Storm water runoff to cemetery is only on a temporary basis • Concerned with the proposed orientation of the buildings east of the CNR, mitigate “overlook” by revising the proposed building orientation Design Principles • Insufficient active & passive recreation areas may encourage trespass into cemetery Master Plan • Part of the woodlot is located on lands owned by the cemetery. Would like input into the woodlot management plan • Wants tower setbacks to cemetery to be the same as those to the transit green Circulation & Transit • Concerned with the location of the Passenger Pick-up & drop off on the west side of Yonge St opposite the cemetery entrance Development Guidelines • Wants input to the study for the restoration of Pomona Creek • Building orientation to the east of the CNR • Object to the re-alignment and/or widening of Langstaff Road near Bayview, that bisects the east portion of the cemetery
Eileen Liasi	Height & Density • Population is too high • Building heights are too high • People jobs ratio not meeting the Regions target Transportation • Questions non-auto mode split targets • Walking distance from east end to the GO train is too far • Increase in auto traffic on Bayview & Leslie Section 37 • Questions how Section 37 bonusing will be implemented Servicing • Development impact on ground water & flows to Pomona Creek
Ted Spence	• Built form, density & population are appropriate for the site • Represents an opportunity to contribute to growth with minimal impact on traffic • Phasing & zoning are essential to success • Integration with the RH Centre Plan is critical to make the hub a success