Report to: Development
Services Committee Date of Meeting: June
20, 20006
SUBJECT: Revised Precinct Plan and Draft Plan Conditions
Ruland
Properties Inc. (The Remington Group)
East Side of Warden Avenue, North of Highway 407, South of the Rouge River and West of the GO Line
Markham Centre
SU 01-113921
PREPARED BY: Richard Kendall,
Manager of Development, Central District, Extension 6588
RECOMMENDATION:
THAT the
report dated June 20, 2006 entitled “Revised Precinct Plan and Draft Plan
Conditions, Ruland Properties Inc. (The Remington Group)” be received;
That the
revisions to the Precinct Plan as they relate to the retail core be endorsed;
and,
That the amended
draft plan of subdivision prepared by Bousfields Inc. (drawing no. X-0033-1-1dp,
dated May 6, 2006), and revised conditions of draft plan
approval attached as Appendix ‘A’, be approved.
EXECUTIVE SUMMARY:
In July, 2003, Council granted draft plan approval to the Remington
Group’s ‘Downtown Markham’ project which occupies approximately 94.3 ha (233
acres) between Warden Avenue, Highway 407, the Rouge River and the GO line. This project serves to implement many of the
Town’s objectives for Markham Centre though the introduction of office and
business park uses, grade-related retail and residential units in a medium to
high density built form. The phased
plan anticipates an approximate 20 year plus build-out. This
report discusses revisions to Remington’s precinct plan for the retail core and
amendments to their draft plan and related conditions of draft plan
approval.
Since 2003, the applicants have been working to address the
remaining technical issues associated with the conditions of draft plan
approval, prior to executing a subdivision agreement. Addressing these technical issues requires
amendments to the conditions of draft plan approval. In addition, transitioning away from the earlier proposed
lake to a park as a central amenity feature for Markham Centre has necessitated
revisiting the road network and precinct plan design for the adjacent retail
core.
This report also speaks to a peer
review process which was undertaken at Council’s direction, given the
comprehensive, mixed use nature of the application, the extensive design and
built form criteria, and the projected long-term build-out of these lands.
Proposed revisions to the draft plan
and conditions of approval include deleting
the lake block and incorporating a reconfigured park block representing the new
central amenity feature. Changes to the local
park network and the revised road pattern in and around the retail core are
also addressed in the revised plan, as are lane widths and turning radii,
previously identified as redline revisions to the original plan. Enterprise Boulevard,
which has been constructed and dedicated to the Town, has been removed from the
subdivision, and its final alignment reflects the location where it crosses
beneath the GO line.
FINANCIAL CONSIDERATIONS:
Not applicable
In July,
2003, Council granted draft plan approval to the Remington Group’s comprehensive,
mixed-used project ‘Downtown Markham’. It
is a project which implements many of the Town’s objectives for Markham Centre,
including protecting for the introduction of rapid transit through the centre;
respecting and enhancing the Rouge River valley; providing for a internal road
network; creating a series of new public spaces and urban parks; and, providing
for a variety of development parcels to accommodate a wide range of uses.
The plan
contributes to achieving the Markham Centre vision though the introduction of
up to approximately 362,750 square metres (3,904,736 square feet) of office and
business park uses, 33,755 square metres (363,348 square feet) of grade-related
retail and up to 3,889 residential units in a medium to high density built
form.
The plan, which will be phased, anticipates an approximate
20 year plus build-out, and
provides for a series of residential and mixed-use neighbourhoods and local
parks. Office uses are strategically
located within three large blocks between Enterprise Boulevard and Highway 407.
A key
component of the original Remington proposal was the approximately 2.4 ha. (6
acre) water feature referred to as “Park Lake”.
Bounded by the Rouge River Valley to the north, the proposed Civic Square to the south, the downtown shopping
district to the west, and a relocated Tributary 4 and residential district to
the east, Park Lake was strategically located to serve
as a central focus for the plan and Markham Centre. At the time of draft plan approval, a number
of technical issues remained to be resolved concerning flows between Tributary
4 and the lake, and whether the lake would ultimately be approved by the
environmental approval agencies.
In
recognition of some of these technical challenges, the conditions of draft plan
approval contained policies to deal with issues related to the lake. These issues included the need for
environmental agency approval, and the long term ownership and maintenance of
the lake if approved for construction.
The conditions also spoke to the owner undertaking
studies to develop, and construct an alternative form of central, publicly
accessible open space amenity within Markham Centre, if, prior to final approval of
the draft plan, it was determined that the lake was not feasible.
Subsequent
to the granting of draft plan approval, and as a result of further discussions
with the regulating agencies and the Town, the applicant concluded that the
lake was not a viable amenity within Downtown Markham. The applicant made a presentation to Development
Services Committee in December, 2003, at which time Council referred this
matter back to staff to work with the applicant to identify an alternate
amenity feature for Downtown Markham.
Council
subsequently endorsed the concept of a design charrette process, with public
participation, to create plans for an alternate open space amenity
feature. The design charrette resulted
in a preferred concept for an urban park being selected in May, 2004, with
initial park design now underway.
In July, 2004, the Markham Centre
Zoning By-law (2004-196) was enacted to implement the plan, including
establishing an appropriate park zoning for the central amenity feature. Since the granting of draft plan approval and
enactment of the Zoning By-law, the applicant has been working towards
addressing the remaining technical issues associated with the conditions of
draft plan approval, prior to executing a subdivision agreement.
Addressing these technical issues requires
amendments to the conditions of draft plan approval. In addition, transitioning away from the lake to
a park as the central amenity feature for Markham Centre has necessitated
revisiting the road network and precinct plan design for the adjacent retail
core.
In the meantime, the applicants, working
in concert with the Town have completed construction of Enterprise
Boulevard through the plan, and are now proceeding
with obtaining phase one site plan approvals (Honeywell office building,
apartments and townhomes) to be in a position to finalize building permits,
once the subdivision agreement has been executed and the plan registered.
Technical issues with TRCA have
now been addressed
Since the granting of draft plan
approval, the applicants have been working closely with the Toronto
and Region Conservation Authority (TRCA) to
address the comprehensive range of issues associated with this extensive
project. The TRCA
has now issued conditions of draft plan approval (Appendix A) which will
establish a framework for the applicant to proceed with individual development
proposals.
Original Draft Plan Conditions were Peer Reviewed
Given the comprehensive, mixed use
nature of the application, the extensive design and built form criteria, and
the projected long-term build-out of these lands, the “Downtown Markham”
proposal has been subject to intensive review by Town Departments and public
agencies. In approving the original precinct plan, plan of
subdivision and proposed zoning amendments, Council authorized staff to
proceed with a peer review of the conditions of draft plan approval and the
zoning by-law.
Planning
staff retained The Butler Group
(Consultants) Inc. to peer review the draft plan conditions and draft
by-law, and the Legal Department retained the firm of Goodmans. Staff previously reported out on the peer
review process for the zoning by-law at the time of adoption. Comments on the peer review for the
conditions of draft plan approval have been pending resolution of the remaining
technical issues associated with the review by the environmental approval agencies, which
have now been addressed.
The Butler
Group, in their review, concluded that the draft plan conditions are appropriate,
protect municipal and agency interests, implement the Ruland proposal, and represent
good planning. The Butler Group
recognized that given the size, complexity and projected length of build-out,
that modifications to the draft plan should be expected over the projected
planning period. Notwithstanding, the
conditions adequately and appropriately provide the necessary safeguards for
implementing the Precinct Plan.
The conditions as noted are rigorous, and in order to
maintain a degree of flexibility in implementing the plan, the Butler Group
made a number of suggestions relating to fixing the structural elements of the
plan such as roads and development limits and establishing an internal process
for dealing with the conditions as each phase of development proceeds.
Goodmans, in reviewing the original conditions of draft plan
approval, made a number of recommendations regarding consistent use of wording
to clarify the conditions relating to the timing of approvals or other triggers. In addition, they commented on matters of
applicable law in relation to certain clauses in the agreement. They further emphasized the need to
coordinate the release of the various phases of the subdivision to available
infrastructure, particularly given the projected long-term build-out; scale of
this development; and, potential for future land transfers. A ‘Master Subdivision Agreement’, with
separate Master Phasing Plan is a recommended approach to deal with these
issues. These recommendations are
reflected in the attached revised conditions of draft plan approval (Appendix
A), where appropriate.
Revised Precinct Plan for the Retail Core
With the change from a lake as a
central feature of the Downtown Markham plan, the Remington Group began to
explore opportunities to enhance the shopping and entertainment experience
within their retail core. To this end,
Remington sponsored work sessions with retail experts in 2004, to establish
parameters for a dynamic retail area consisting of a compact shopping district
anchored by hotel and entertainment facilities.
In order for this retail core to be successful, the experts concluded
that the area had to be able to attract shoppers beyond the boundaries of
Markham Centre, and needed to encompass a variety of merchandising uses,
cultural amenities, and other attractions with a high level of urban design and
architecture.
The retail core will adopt some of
the elements typically associated with “Lifestyle Centres”, including an urban
environment featuring stores with a streetfront presence. The core will also contain a variety of
retailers ranging from specialty food stores, home furnishings, décor and
design shops, sporting goods, to health and fitness centres, restaurants and
cafes, and a wide range of personal service shops.
Key elements contributing to the
design of the retail core include, a pedestrian-friendly urban environment; an
intimate link to the central park; emphasis on entertainment and hospitality
venues; and, the availability of parking.
These lands encompass the area generally framed by the Rouge River to
the north, Enterprise Boulevard to the south, Birchmount Road to the west and
the central amenity feature to the east, and comprise 8.53 ha (21 acres). Within this area, the draft plan anticipates approximately
1,600 residential units, and the by-law permits 33,000 square metres (355,000
square feet) of retail floor area.
The applicant’s retail profile
identifies the potential for up to 42,734 square metres (460,000 square feet)
of retail floor area and, depending on phasing and building programme, zoning
amendments may be required to achieve this level of retail development. This would be the subject of a separate
report to Council. In the interim, the
residential unit count, height programme and built form is consistent with the
zoning by-law.
In order to create the core, the
area has been broken into 6 distinct districts, distinguished by a varying
retail mix, along with building and mixed-uses programming elements (Figure No.
4).
High Street
The High Street District, which encompasses
the lands on either side of a north/south street which bisects the retail core,
will be the most intense, retail oriented component of the Remington plan. It will feature a highly animated shopping
environment which will be home to a variety of signature retailers and brands. The streetscape will have a high level of
design and furniture, framed by continuous building elements with large windows
at grade. The north end of this district
will be anchored by a hotel and spa, while the south end leads to a piazza.
The Piazza
Intended as a central focus within
the retail core, the piazza, reminiscent of a European square, will be ringed
by a series of shops, offices and mixed-use buildings where people enjoy
seasonally programmed events. The piazza
is strategically placed adjacent to the central park to extend the pedestrian
experience to the park and provide opportunities for joint-programming of
activities.
Civic Mall (Simcoe Promenade)
The Civic Mall is intended as a
linear park which will traverse the Remington plan, providing pedestrian and
bicycle links between the various communities.
Adjacent to the retail core, the Civic Mall will be bracketed by the
entertainment district which will feature large, mid-rise buildings
accommodating theatre, cinemas, restaurants, clubs and other entertainment
related activities. The Civic Mall is
also intended to serve as a transit mall or corridor for future phases of the VIVA
transit service within a dedicated corridor.
West
Valley Drive
Along this portion of West
Valley Drive distinctive residential buildings are
proposed, including a hotel and spa on the north side, adjacent to the Rouge
River. A series of mid-rise condominiums and
professional office space will occupy the south side of the street, with retail
consisting of grade-related carriage trade uses such as antique shops, jewelry
stores, interior design showrooms or art galleries.
Parkside
Drive
The Parkside
Drive area is intended to act primarily as a
residential street, overlooking the new central amenity feature, on the east
side of the road. The Parkside
Drive community will provide a transition between
the downtown shopping core and the central park. North of the interface with the piazza, Parkside
Drive will be exclusively residential in
character, while south of this area, retail uses will be introduced at grade to
take advantage of the proximity to the piazza, the entertainment district and
the Civic Mall.
Birchmount
Road
Birchmount
Road serves as a major connecting road between
Markham Centre and the rest of the town.
It will be framed by a series of mid-rise residential and mixed-use
buildings. On the west side of the
street convenience commercial uses (grocery, banks, pharmacy) are proposed,
while neighbourhood shops and services (dry cleaners, florists, etc.) will
occupy the east side of the street.
Retail Programme Presented to Development Services Committee and Markham
Centre Advisory Group
The applicant and their retail
consultant presented the retail programme in detail to Development Services
Committee in February, 2005. The
presentation outlined the importance of a strong identification for the retail
core using architecture, atmosphere and landmark features. The discussions at committee focused on the
phasing and timing for the delivery of the retail programme, as well as the
provision of parking within structures.
A similar presentation was made to the Markham Centre Advisory at their
December, 2004 meeting. The comments
from the Advisory were very supportive of the emerging retail programme and the
architectural direction of the retail core.
Public Road Network will Terminate at Birchmount Road
One of the key elements of the retail
district, as it relates to the original draft plan conditions is the road
pattern. The southerly extension of a
street which could potentially align with Verclaire Gate, north of Highway 7, was
originally intended to bisect the retail core and connect with the road
proposed adjacent to the lake (Figure No. 4).
In order to maximize opportunities for below-grade parking and provide a
higher level of finish and maintenance for the retail core, the applicants are
proposing to terminate this road as a public street at Birchmount
Road. From
here it would transition to a private, but publicly accessible road through the
retail core, on either side of the piazza.
Terminating the road in this
fashion would create opportunities to park beneath the road, provide linkages
between parking structures and allow increased flexibility, from an operations
perspective, to close the road for special events and functions. The draft plan conditions recognize this
option and require appropriate arrangements to be in place to secure public
access and regulate the timing of road closures.
Transportation Up-date has been Prepared and Reviewed
The applicant’s traffic consultant
has undertaken a transportation up-date to determine if reconfiguring the potential
Verclaire Gate extension and Birchmount Road
intersection would create problems on the adjacent public road network. The up-date concludes that limiting traffic
on this road between Birchmount Road
and Parkside Drive will not
have a significant impact to the recommended lane configuration and operations
of the balance of the road network. No
additional lanes are required nor do intersections need to be expanded.
This matter has been reviewed with
Transportation staff who concur with the consultant’s analysis and the
conditions of draft plan approval include a clause which allows consideration to be given to private condominium
roads as part of the local road network.
This clause requires a seamless transition between the private and public
road network and also requires the road to be designed to function as the
equivalent of a public road, and meet all of the Town’s operational criteria.
Phasing Plan has been Up-dated to Include the Retail Core
The applicant has updated the
phasing plan to incorporate the retail programme. This plan identifies the lands on the west
side of Birchmount Road, as
the first component of the retail core.
The second phase includes the private road extension through to Parkside
Drive and the blocks immediately abutting the
piazza portion of the plan. Phase three
deals with the lands at the north end of the retail core, on the south side of West
Valley Drive, while the lands on the north side of
the Civic Mall represent the fourth phase. The remaining parcels within the
plan comprise the last phase of the retail programme (Figure Nos. 5 to 9). Staff, in concert with the Region and
applicant, will need to review the timing and implementation of the associated park
and transit components of the Civic Mall through their assessment of the
individual site plan applications for the retail programme and, as part of the
on-going discussions for the neighbouring residential lands
Parking within the retail core is ultimately
intended to be accommodated entirely below grade, beneath the combined
retail/residential parcels, and in accordance with the Markham Centre
By-law. Consistent with the Parking
Strategy, the applicants have identified a programme of temporary surface
spaces on adjacent lands in association with each phase of development. This temporary parking is required to address
the short-term parking supply until remaining lands are developed and potential
municipal and/or on-street parking is available. In the fullness of time, these lands would be
converted to development blocks and the temporary surface parking
eliminated. This phasing programme will
be reported out in concert with individual development applications.
Revisions to the Draft Plan and Conditions of Approval are Recommended
The draft plan and conditions of
draft plan approval have been amended to:
- incorporate
draft plan approval conditions resulting from finalizing the technical
review of the plan
- accommodate
changes to the draft plan to address the new central amenity feature (in-lieu-of
the lake)
- associated
amendments to the retail core and Precinct Plan resulting from the lake
being deleted
- comments
arising from the peer review process
Specifically, the revised draft plan
(Figure No. 1) deletes the lake block and incorporates a reconfigured park
block representing the new central amenity feature. Changes to the local park network within the
plan reflect the creation of the new amenity feature. The draft plan reflects the revised road
network in and around the retail core and also incorporates lane widths and
turning radii, previously identified as redline revisions to the original plan. The final alignment of Enterprise
Boulevard reflects the location where it crosses
beneath the GO line and the resultant changes to the adjacent parcel fabric,
are also incorporated into the plan.
Finally, Enterprise Boulevard,
which has been constructed and dedicated to the Town, has been removed from the
subdivision. Structurally, the development limits and environmental buffers
previously established have not changed.
These changes, however, require
new conditions of draft plan approval to incorporate comments provided by the Toronto
and Region Conservation Authority. In
addition, up-dated conditions from York Region and the Ministry of Transport of
Ontario, and suggested wording
amendments from the peer review consultants are reflected in the attached
revised conditions of Draft Plan Approval (Appendix A).