RECOMMENDATION:
PURPOSE:
The purpose of this report is to
recommend approval of the proposed Official Plan and Zoning By-law amendment
applications by St. Mark’s Coptic Canadian Village, to permit residential uses
and certain institutional components of a proposed religious campus north of
Steeles Avenue between Acadia Avenue and Ferrier Street (3660 Steeles Avenue).
BACKGROUND:
The subject property occupies the
entire block bounded by Steeles Avenue, Acadia Avenue and Ferrier Street having
a lot area of 4.86 ha (12 acres), and is municipally known as 3660 Steeles
Avenue (Figure 1). The property is currently
vacant and is devoid of any significant vegetation.
The property is bounded to the south
across Steeles Avenue by single detached dwellings, which back onto Steeles
Avenue. To the east, by a Sunoco gas
bar and car wash and vacant lands approved for a commercial development. The Tender Holdings site plan application
was approved in principle by the Ontario Municipal Board on January 20,
2003. To the west across Ferrier Street
are two existing commercial developments (Metro Square and New Century Plaza). To the north across Acadia Avenue are two
3-storey office buildings and a place of worship (Figure 3).
Previous zoning application and site plan applications
In 1997, applications were submitted by Whitehorn
Investments Limited (First Professional Management) to permit the construction
of a 10,870 m² (117,000 ft²) commercial development to accommodate a
combination of retail, service, restaurant and office uses. The proposal consisted of five separate
buildings arranged around the perimeter of the property. The buildings were proposed to be 1-storey
in height, with the exception of the building at the corner of Steeles Avenue
and Ferrier Street, which was proposed to be 3-storeys in height. Site plan approval was granted, but a site
plan agreement was never executed, and this project was subsequently abandoned.
Religious campus proposed
The applicant has submitted applications for official
plan and zoning by-law amendments to permit residential uses and certain
institutional components for a proposed religious campus. It is St. Mark’s desire to construct a
Campus Village that will express the Christian Coptic Orthodox tradition, as
well as achieve a landmark in urban design and built form in Markham (Figure
5). The applicant has not applied for site
plan approval at this time, as they are currently in the process of conducting
an international design competition, which is anticipated to be completed by
the end of June 2003. The applicant has
provided staff with a conceptual site plan and building elevations for
demonstration purposes only (Figure 4 and 5).
The conceptual site plan shows a variety of religious
and ancillary uses integrated as one comprehensive development, and includes
the following uses:
- Cathedral
- Chapel
- Private
school (elementary and high school)
- Day
nursery/day care
- Community
centre which will include a banquet hall and other lifestyle amenities
(available to the general public)
- Museum
(to house religious artifacts)
- Seniors
residence
- Retirement/Nursing
home
- Bishop’s
residence
- Office
component
The applicant is proposing to develop a master site plan for the
entire site with a total gross floor area ranging from 59,700 m² (642,725 ft²)
to 138,773 m² (1,493,800 ft²). The low
end of this range is equivalent to 123% Floor Area Ratio (F.A.R.) and the high
end of the range is equivalent to 285% F.A.R.
The residential component (seniors residence and retirement/nursing
home) is proposed to be approximately 18% to 23% of the total proposed gross
floor area.
The applicant has indicated that many parishioners have moved into
the Markham area and the north part of Scarborough, and the applicant’s main
goal at this point is to construct a place of worship that will accommodate the
future needs of their parishioners. The
first phase of development would include the Cathedral and community centre
(which would be available to the public).
The subsequent phases would build out the remaining uses proposed for
this site over the next 8 to 10 years.
The applicant is proposing to phase the development as noted in the
table below. It should be noted that
there are no uses proposed for Phase IV at this time:
|
Phase / Proposed Uses
|
Gross Floor Area
|
|
Minimum
|
Maximum
|
|
m²
|
ft²
|
m²
|
ft²
|
|
Phase I (2004)
|
|
|
|
|
|
Cathedral
|
12,495
|
134,500
|
12,495
|
134,500
|
|
Community Centre
|
6,472
|
69,668
|
12,944
|
139,335
|
|
Phase II (2008)
|
|
|
|
|
|
Daycare
|
439
|
4,722
|
1,316
|
14,165
|
|
Museum
|
3,375
|
36,326
|
6,749
|
76,653
|
|
Seniors Apartment
|
4,784
|
51,500
|
14,353
|
154,500
|
|
Retirement Building/Assisted Living
|
4,419
|
47,563
|
13,256
|
142,688
|
|
Long Term Care Facility
|
1,661
|
17,883
|
4,984
|
53,646
|
|
Phase III (2011)
|
|
|
|
|
|
Office Building
|
7,432
|
80,000
|
22,296
|
240,000
|
|
Private School
|
4,262
|
45,875
|
12,785
|
137,625
|
|
Second Church
|
2,758
|
29,688
|
2,758
|
29,688
|
|
Phase IV (beyond 2011)
|
11,612
|
125,000
|
34,837
|
375,000
|
|
TOTAL
|
59,709
|
642,725
|
138,773
|
1,493,800
|
Careful consideration will be given at the site plan stage to ensure
that the siting, massing and scale of development, as well as landscaping
contribute to reinforce the function of this site as a focal point and
multi-purpose centre, while acknowledging its prominent location on Steeles
Avenue.
Preliminary Traffic and
Parking assessment has been completed
A preliminary Traffic and Parking assessment has been prepared by
the applicant’s traffic consultants (Poulos and Chung Limited) for the subject
property based on conceptual information currently available for this
proposal. The consultants have advised
that best efforts were employed, based on experience and knowledge of both parking
demands for the various uses as well as transportation and traffic matters, and
information about the time of various activities obtained from the applicants,
to prepare the assessment. The
consultants have also advised that the assessment was based on worst case
scenarios and that despite the conceptual nature of the information available
the results of the assessment are reliable.
With respect to traffic, the consultants note that the proposed
development would generate significantly less vehicle trips than any of the
currently permitted uses such as office and retail/ shopping uses. They point out that previous traffic impact
studies for this site done in support of the previously approved shopping
centre use indicated that the surrounding road network is capable of adequately
serving the projected demand for that use.
They have expressed confidence that the surrounding road network can
satisfactorily accommodate the traffic demands of the proposed development.
With regard to parking, the consultants note that the majority of
the parking supply will be provided below grade, with a minimum 1,200 parking
spaces in a proposed one-storey underground parking garage. It is anticipated that there would be at
least 100 to 200 additional parking spaces built at grade, for a total proposed
parking supply of approximately 1,400 parking spaces for the entire site.
There is insufficient information at this time to accurately
calculate parking requirements for this site in accordance with the Town’s
parking by-law. Staff applied the
current parking standards to the conceptual gross floor areas, and number of
residential units and classrooms provided, and based on this information the
proposed development would require a minimum of 1,887 parking spaces to a
maximum of 2,850 parking spaces, using the current place of worship
standards. Using the proposed new place
of worship standards the proposed development would require a minimum of
approximately 2,533 parking spaces and a maximum of approximately 3,500 parking
spaces. These numbers are illustrated
in the table below:
|
|
Applying current Place of Worship parking standards
|
Applying proposed Place of Worship parking standards
|
|
Uses
|
Minimum
|
Maximum
|
Minimum
|
Maximum
|
|
Cathedral
|
714
|
714
|
1,250
|
1,250
|
|
Second Church
|
166
|
166
|
276
|
276
|
|
Other uses
|
1,007
|
1,970
|
1,007
|
1,970
|
|
TOTAL
|
1,887
|
2,850
|
2,533
|
3,496
|
However, it has been pointed out that the Cathedral and church never
have simultaneous service and that the Cathedral is mostly used for certain
holy days and major feast days. The
religious campus is also described by the consultants as being very unique in
that the parking demands of various uses, particularly the uses with the
greatest parking demand such as the Cathedral, theater, private school, banquet
hall and office uses, would not coincide.
Based on the premise of shared parking, and the non-coinciding peak
periods for the various proposed uses, the consultants have estimated that the
site would require, at full build out, a maximum of 900 parking spaces at any
one time, whereas 1,400 parking spaces are proposed, for a potential surplus of
500 parking spaces.
Once the design competition is completed and a
site plan is prepared for this site, there will be a more accurate
understanding of the gross floor areas being proposed for each use. This information will be used at the site
plan control stage to carry out more detailed traffic and parking
assessments. It should be noted that
the draft zoning by-law does not propose any site-specific parking standards at
this time. Unless the parking standards
for the site are altered through future rezoning or minor variances, any
development that occurs on this site will have to comply with the current Town
parking requirements. Parking
reductions can be considered in the future based on a satisfactory parking
analysis at the development stage, subject to such study being peer reviewed
with satisfactory results. Also, as discussed below, the proposed zoning by-law
would contain a Holding (H) provision which would require the applicant to
submit a satisfactory parking analysis before any development can proceed.
The
Region of York has expressed preliminary support for the proposal
The Region of York has indicated that the
proposed development provides for a compact mixed use built form. The
development will be be transit supportive and in keeping with the related
policies of the Regional Official Plan.
The Region has noted that the proposal is also consistent with Regional
Official Plan policies which encourages the location and design of cultural
facilities to support the centers and corridors policies. Additional comments and requirements will be
provided at the site plan approval stage.
Servicing study will be required at site plan
stage
Public Meeting
was held to consider the application
On Tuesday, April 22, 2003, a public meeting
was held to consider these applications.
Two written submissions were received from area residents on the south
side of Steeles Avenue, one generally in support (Ms. Weng) and one in
objection (Mrs. Woo). The concerns
raised by the area residents are addressed as follows:
Increased TTC services not determined at this time
One resident inquired if there would be increased TTC
services along Steeles Avenue. At this
time, staff is unable to confirm whether or not TTC services will be increased
along Steeles Avenue. As the Campus
Village is developed, updated traffic studies will be prepared and if
additional public transit service appears to be warranted then the matter can
be discussed with the TTC at that time.
Church will not contain a bell
One resident was concerned that the church would
contain a bell, which would disturb the area residents. The applicant has confirmed that neither the
proposed Cathedral nor the second church will contain a bell.
Ferrier Street and Acadia Avenue can accommodate this proposal
One resident was concerned that Ferrier Street and
Acadia Avenue will become congested, in part because of existing
office/commercial uses on Ferrier Street (New Century Plaza and Metro Square).
As discussed earlier in the report, according to the preliminary Traffic and
Parking Demand Study the existing road network can satisfactorily accommodate
the vehicle demands of the proposed development.
Construction activities are regulated by the Town of Markham
One resident was concerned that development of this
site would result in road closures and debris falling into the backyards of
residential properties that back onto the south side of Steeles Avenue. The impact of construction activities will
be regulated by the Town of Markham to minimize the impact on existing
communities. For instance, the Town’s
noise by-law regulates the hours when construction activities can take place
and there are standard provisions in site plan control agreements to ensure
that debris and construction material do not litter public streets and
boulevards. These matters are monitored
and dealt with by By-law enforcement officers and/or engineering
inspectors. Matters such as closures of
local roads would also be controlled by the municipality to ensure that traffic
flow / access within the surrounding community is maintained.
Other concerns raised are not considered
to be significant
One resident expressed some concern with the proposed
bishop’s residence, because this use was not common in their denomination. The religious residence is considered to be
accessory to the place of worship, and is quite common amongst other places of
worship throughout the Town. Another
resident was concerned that there would be noise and traffic generated by
emergency vehicles attending to residents of the proposed seniors home/nursing
home and retirement home. The proposed
development fronts onto Steeles Avenue, a major arterial road, which is generally
used by emergency vehicles, and occasional disturbances by such vehicles are to
be expected within the urban areas. The
concerns raised are not considered significant from a planning perspective.
Official plan
amendment would redesignate the lands from Business Corridor to Community
Amenity Area
The lands are currently designated Business Corridor
in the Official Plan. The intent of
this designation is generally to accommodate a mix of high quality business
activities along major road frontages adjacent to industrial areas to
accommodate the business and service needs of companies and employees and also
to accommodate certain businesses that may also serve the general public. While
most of the proposed uses, including the place of worship component, would be
permitted under the Business Corridor Area designation, this designation
clearly does not permit residential or retirement/nursing home uses and the
proposal to construct a religious campus does not appear to be in keeping with
the intent of the Business Corridor area.
The proposed development would be better suited to a Community Amenity
Area designation, the intent of which is to provide for a multi-use centre
offering a diverse range of services, as well as community, institutional and
recreational uses and to function as a significant and identifiable focal point
for the areas served. This designation
would accommodate all of the proposed uses.
The draft official plan amendment attached as Appendix ‘A’ redesignates
the lands from Business Corridor Area to Community Amenity Area.
In addition to the proposed uses, the
Community Amenity Area designation would generally permit a range of other
service uses, restaurant uses and certain retail uses. However, it is felt that these type of uses
are well provided for in the vicinity (Metro Square, New Century Plaza and the
proposed Tender Holdings plaza at the corner of Warden and Steeles.) to service
the needs of the area and therefore it is not necessary to provide for such
uses within the subject lands. The
purpose of these applications is to accommodate a major campus development with
specific uses and it is felt that retail, general service and restaurant uses
to serve the general public would compromise such a development over time. The draft Official Plan Amendment would
limit the permitted uses to those proposed in this application.
In addition, the draft
Official Plan amendment proposes to limit the residential permission within the
site, with the exception of a bishop’s residence, to one apartment building
with a minimum of four (4) stories. It
is felt that if residential development is to occur on the subject lands, such
development should have higher densities to be transit supportive and occur on
a minimum of land area to ensure that residential uses do not become the
predominant use within these lands over time and thereby compromise the
intended development at this location. A draft official plan amendment is attached as
Appendix ‘A’.
It should be noted that the official plan amendment
attached as Appendix ‘A’ is in draft form, and based on further review there
may be some minor modifications to this document prior to final approval by
Council.
Zoning amendment
to accommodate the proposal can be supported subject to restrictions
The subject lands are currently zoned Business
Corridor under By-law 119-73, as amended (see Figure 2). In 1997, a site specific zoning by-law
amendment (By-law 144-97) rezoned the property to Business Corridor (BC) with a
90% Floor Area Ratio and added a list of permitted uses, which included almost
all of the uses currently proposed including a place of worship. Only the proposed residential and nursing
home uses and the museums are not permitted by the current zoning of the
property.
The applicant has requested that zoning be granted
subject to restrictions, if necessary, so that financing can be obtained. Typically a rezoning involving a development
of this nature would be accompanied by a site plan which would provide
considerable detail with respect to built form, setbacks, parking etc. that
would assist with the drafting of a site specific by-law. Detailed parking and traffic studies would
also be available to support the proposal and staff would have the necessary
feedback on such studies from the Engineering Department and relevant external
agencies such as the City of Toronto and the Region of York prior to any
approval. However, in this instance
only conceptual site plan and perspective drawings, tentative phasing
information, and a preliminary traffic and parking study are available for
review at this time. While the addition
of the proposed residential, nursing home and museum uses are not considered to
be a problem, in the absence of the necessary information staff have no basis
at this time for increasing the permitted density at this site. Under these
circumstances staff would be prepared to support the proposed development/uses
subject to the following:
- The
site density would be limited to the currently permitted 90% Floor Area
Ratio;
- The
residential permission would limit such uses, with the exception of the
bishop’s residence, to one building with a minimum of four (4) stories and
a maximum of 60 units;
- The
development standards would generally reflect standards considered
reasonable for a typical Community Amenity Area site with certain site
specific provisions such as those noted above;
- All
of the uses would be subject to a Hold (H) provision, the removal of which
for any phase of the development would be subject to the following conditions
upon application for site plan approval:
1.
Submission and approval of detailed
Traffic and Parking Demand Study;
2.
Submission and approval of required
Servicing Study;
3.
Execution of a site plan agreement
with the Town;
4.
Any necessary water allocation for
the residential component being granted by Council.
Once the specifics of the proposal are finalized
through the international design competition and any subsequent works, the
applicants will submit site plan applications and carry out the required studies. It should be noted that the 90% F.A.R.
currently permitted at the site represents approximately 43,700 m² (470,400 sq. ft.) and
would likely
accommodate phases I and II of the proposal.
At the development stage, in addition to a
Hold removal application, additional rezoning or minor variance applications
may be necessary with respect to development standards to accommodate the
proposal.
The draft zoning by-law amendment attached as Appendix
‘B’ introduces a new Community Amenity (CA) zone category into By-law 119-73,
as amended. The by-law also rezones the
subject lands from Business Corridor (BC) to Community Amenity (CA) to reflect
the proposed change in land use designation as well as the requested uses and
the development standards as discussed above.
It should be noted that the zoning by-law amendment
attached as Appendix ‘B’ is in draft form, and based on further review there
may be some minor modifications to this document prior to final approval by
Council.
FINANCIAL
CONSIDERATIONS:
There are no financial implications for the Town in this report.
BUSINESS UNITS
CONSULTED AND AFFECTED:
The applications were circulated to internal
departments (Fire, Building, Engineering, Design, Waste Management), and
external agencies for comments.
|
|
|
|
|
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
|
DOCUMENT: Q/Planning/App/Zoning/03105829/DSC_June17
APPLICANT/AGENT: Joanne Barnett Tel: (416) 567-1751
6
Dunkirk Road Fax: 9416)
423-1980
Toronto,
ON
M4C
2L9
