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TO: |
Mayor and Members of Council |
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FROM: |
Valerie Shuttleworth, Director of Planning & Urban Design Jim Baird, Commissioner of Development
Services |
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PREPARED BY: |
Margaret Wouters, ext. 2758 South Team |
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DATE OF MEETING: |
June 7, 2005 |
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SUBJECT: |
Milliken Main
Street Study: Official Plan and Zoning By-law Amendments |
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RECOMMENDATION:
That the report entitled “Milliken Main Street
Study: Official Plan and Zoning By-law Amendments”, dated
That the Official Plan Amendment,
incorporating a Secondary Plan for the Milliken Main Street Area within the Risebrough
That the Region of York be
requested to approve the Official Plan Amendment incorporating a Secondary Plan
for the Milliken Main Street Area in the Risebrough
That the draft implementing
zoning by-laws attached as Appendix ‘C’
be finalized and enacted;
That the recommendations of the Safety Audit
of the Old Kennedy Road/Denison Street intersection be implemented and the
existing configuration of the Old Kennedy Road/Denison Street intersection be
endorsed;
That the
draft by-law to designate the Milliken Main Street Secondary Plan area as a
Community Improvement Project Area, attached as Appendix ‘D’, be finalized and enacted; and
That a Public Meeting be held to
consider the draft Milliken Main Street Area-Specific Development Charges
By-law, once a draft by-law has been prepared to the satisfaction of the
Commissioner of Development Services.
EXECUTIVE
SUMMARY:
The Milliken Main Street Secondary Plan and
Zoning By-law have been prepared to implement the urban design vision for the
On
The draft Secondary Plan proposes a new
medium and high density residential community anchored by a Main Street along
the south portion of
Background servicing and transportation studies have been completed. A conceptual servicing plan for the provision of water, sanitary and stormwater management services was undertaken by Marshall
Macklin Monaghan Ltd in support of the proposed development within the
Secondary Plan area. The study concluded
that although
local sanitary capacity exists for a limited amount of new development, local
sanitary sewer improvements in the form of a new sanitary sewer along
A comprehensive transportation study was
undertaken by Marshall Macklin Monaghan Ltd to confirm that the proposed
development within the Secondary Plan area can be accommodated by the current
and future transportation system. The study
concludes that most intersections on the boundary road network will continue to
operate satisfactorily in the future (2011) with the additional traffic
generated within the Secondary Plan Area. The lowest level of service at any of
the boundary intersections is experienced during the weekend at the Kennedy/Steeles intersection.
The resultant congestion and delay at this intersection for a few hours
on the weekend is comparable to many other similar locations in other
municipalities where there is a large retail facility that attracts customers
from across the GTA.
In addition to the Transportation Study, a Safety Audit of the Old
Kennedy Road/Denison Street intersection has been undertaken to identify
long-term solutions to improve the operation of this intersection as directed
by Council at the April, 2004 Public Meeting for the draft Secondary Plan and
zoning by-law. Although the closure of
access from Old Kennedy Road to Denison Street has previously been contemplated
as a solution to reducing the potential for collisions at the intersection, the
closure of a signalized access point into the Secondary Plan Area is no longer
seen as desirable given the level of development proposed within the Secondary
Plan, and the potential traffic infiltration impact on neighbouring
communities. As a result, staff recommend that changes to signal poles, signs and
pavement markings be undertaken to improve safety at the
A number
of changes to the draft Secondary Plan and implementing zoning by-law are
proposed based on issues identified by commenting agencies, landowners and in
the background studies outlined above.
The changes to the draft Secondary Plan are primarily related to land
use, density and the road network. The
final draft Secondary Plan is attached as Appendix ‘B’ under separate cover.
The revised land use plan is attached as Figure 2.
Proposed
changes to the implementing zoning by-law, attached as Appendix ‘C’ include the addition of site-specific
provisions to reflect certain existing and proposed developments. Minor revisions to the draft by-law have also
been made to reflect the housekeeping amendment to By-law 177-96 which was
recently enacted by Council in January.
The
next steps in the
It is
recommended that the Official Plan amendment containing
the Secondary Plan for the
PURPOSE:
The purpose of this report is to recommend
that an Official Plan Amendment incorporating a Secondary Plan for the Milliken Main Street Area within the Risebrough
DISCUSSION:
Background
The Milliken Main Street Secondary
Plan and Zoning By-law have been prepared to implement the urban design vision
for the
Funding for the study was approved
in the 2001 Capital Budget. A consulting
team led by Marshall Macklin Monaghan Ltd was retained to undertake the study
in March, 2002. In May, 2002, Council
enacted an Interim Control By-law to freeze development in the study area until
the completion of the study. This by-law
was extended for one year and expired in May, 2004.
In July, 2003 Council endorsed the
Urban
On
Development
Activity
A
number of development applications, totalling approximately 730 residential
units on 7.6 hectares
(18.5 ac) of land, are currently under
review within the Secondary Plan Area.
This represents almost 40 percent of the anticipated residential
development within the Secondary Plan Area, and approximately 20 percent of the
total land area. A summary of the current development activity is provided in Appendix ‘A’.
Secondary
Plan proposes a new medium/high density residential community anchored by a
The draft
Secondary Plan proposes a new medium and high density community anchored by a
The
proposed new community is based on a road network anchored by
Other new
roads include a connection between
Background Servicing and Transportation Studies
Completed
Conceptual Local Servicing Plan (2004)
A conceptual servicing plan for
the provision of water, sanitary and stormwater
management services was undertaken by Marshall Macklin Monaghan Ltd in support
of the proposed development within the Secondary Plan area. The servicing study entitled “Servicing
Analysis Update for
The study concluded that, although local
sanitary capacity exists for a limited amount of new development, local
sanitary sewer improvements in the form of a new sanitary sewer along Old
Kennedy Road, will likely be required to accommodate full build-out within the
Secondary Plan. Sanitary flows are
anticipated to be adequately
serviced
by the Town’s downstream sanitary sub-trunk system without external
modifications. The study also concluded that water can be adequately supplied and operated
within an acceptable pressure range with the existing infrastructure. However, most of the
lands within the Secondary Plan Area do not have servicing allocation at this
time. With respect to stormwater management, the
study concluded that additional stormwater ponds
would not be required, however, in reviewing specific
development applications in this area since the completion of the study, staff
have determined that further work may be required to determine an appropriate stormwater management program for the area.
Servicing capacity
and infrastructure requirements will be confirmed through more detailed
site-specific analysis, as specific development proposals are considered.
Servicing
Allocation
Most of
the lands within the Secondary Plan Area do not have servicing allocation. In February, 2005 Council approved a strategy
for approving servicing allocation for approximately 4,700 additional residential
units subject to Region of York approval. The Milliken Main Street Secondary
Plan area was given a priority ranking of 3 (where 1 is the highest and 4 is
the lowest priority), and two development applications in this area (total of
158 units) were recommended for specific allocation assignment. In addition to the 158 units recommended for
servicing allocation, a proposal to transfer allocation into the area for 275
apartment units from another site in
Transportation Study (2005) and
A comprehensive transportation study was undertaken by Marshall Macklin
Monaghan Ltd which confirms that the proposed development within the Secondary
Plan area can be accommodated by the current and future transportation
system. The analysis included an
assessment of existing and future peak period traffic conditions on the
boundary road intersections, with and without the additional development
proposed in the Secondary Plan. The
analysis takes into account future road improvements (including the widening of
Kennedy Road and Steeles Avenue and GO rail line
grade separations on both Kennedy Road and Steeles
Avenue), proposed new commercial development south of Steeles
Avenue (Phase 1 Splendid China), and the impact of the relocation and expansion
of the Milliken Mills GO Transit station south of Steeles
Avenue. The analysis also considered
weekend traffic conditions, to account for the possibility that the traffic
generated by the Pacific Mall/Market Village/Kennedy Corners retail complex
west of the Secondary Plan Area during the weekend exceeds weekday peak
flows. The study also considered the
impact of the closure of the
The
study concludes that most intersections on the boundary road network will
continue to operate satisfactorily in the future (2011) with the additional
traffic generated within the Secondary Plan Area. The lowest level of service
at any of the boundary intersections is experienced during the weekend at the
Kennedy/Steeles intersection. The resultant congestion and delay at this
intersection for a few hours on the weekend is comparable to many other similar
locations in other municipalities where there is a large retail facility that
attracts customers from across the GTA.
The study, entitled “Milliken
Mills Main Street Transportation Study”, dated May, 2005, available under separate cover, will be forwarded to
the City of
In addition to the Transportation Study, a Safety Audit of the
Preliminary findings of the Safety Audit indicate that there are changes
that can be undertaken at the intersection to improve safety. These changes include modifications to signal
poles, additional signs and improved pavement marking. The consultant also reviewed potential changes
to the road alignment to improve safety.
However, the road alignment changes would result in significant property
impacts to existing properties in the area (including several residential
properties) and the resultant alternative alignment may not provide sufficient
safety benefits. As a result, staff recommend that changes to signal poles, signs and
pavement markings be undertaken to improve safety at the
Given the above, the reference to the intersection being subject to
further study is proposed to be removed from Schedule ‘AA’ – Detailed Land Use
Plan, and replaced with a policy in the text of the Secondary Plan. The policy will require that recommendations
arising from the Safety Audit be implemented, prior to approval of development
near this intersection. The entire
length of Old Kennedy Road will continue to be shown as major collector road in
the Secondary Plan land use and transportation schedules. In addition, it is recommended that the recommendations
of the Safety Audit be implemented and that the existing configuration of the
PROPOSED
CHANGES TO THE DRAFT SECONDARY PLAN
A number
of changes to the draft Secondary Plan and implementing zoning by-law are
proposed based on issues identified by commenting agencies, landowners and in
the background studies outlined above.
The changes to the draft Secondary Plan are primarily related to land
use, density and the road network. The
final draft Secondary Plan is attached as Appendix ‘B’, under separate cover. The revised land use plan is attached as
Figure 2.
Land use
changes include identification of school site, extension of
Identification
of an elementary school site adjacent to
The York Region District School Board has requested that an elementary
school site be identified within the Secondary Plan area. In keeping with the Town’s preference for
locating schools adjacent to public open spaces, and with the Board’s desire
to minimize the area of the required site by sharing playing fields, an
elementary school site is proposed adjacent to the
Extension of
In
response to discussions with landowners, the Community Amenity Area -
Recently approved industrial uses to be recognized at 82 Old Kennedy Road
A policy
to provide for the existing light industrial use at
The
industrial uses currently permitted on the property have been added as a
site-specific exception in the implementing zoning by-law.
Medium
density residential and commercial densities revised
Medium
density range expanded
The
maximum net density for the Medium Density Residential designation is proposed
to be increased to 80 units per net hectare (32 units per net acre), to accommodate the desired built form
within this designation. The increase
is required to account for the provision of public roads within individual development
parcels – the Official Plan definition of density excludes lands for public
roads. This increase in the density
limit is consistent with the medium density range identified in the Official
Plan for greenfields (OPA 5) Secondary Plans and will
result in an appropriate built form within the Milliken Main Street Secondary
Plan Area.
In
recognition that some of the new public roads may be built incrementally, a
policy has been added to expand the definition of townhouse buildings to
include only two units. This will allow
for future development within, for example, temporary cul
de sacs, without the need for an amendment to the Secondary Plan.
Consideration
of increased density for landowners affected by school site
The owners
of lands now proposed to be reserved for a school site have requested that
consideration be given to increasing density permissions on the remainder of
their lands to compensate for lost development potential (approximately 135
units). The York Region District School
Board and the Town, in consultation with affected landowners, are currently in
the process of finalizing the location, size and configuration of the combined
school/park site. Most properties
between
Floor
Space Index maximums for commercial designations revised
Policies
to marginally increase the maximum Floor Space Index (FSI) in the Community
Amenity Area–Mixed Use and
Net impact on unit yields and commercial gross floor area is negligible
The net impact of the proposed density changes outlined above on the
total unit yields and commercial gross floor area yields is negligible. The 1,900 units and 51,000m2
(549,000 sf) of commercial gross floor area
anticipated in the draft Secondary Plan, remain unchanged. The anticipated population, however, has
been reduced from 5,200 to 4,700 resulting from the application of updated
Town-wide persons per unit assumptions.
Proposed
policy revisions related to urban design, transportation, potentially
contaminated lands, developers group, etc
A number
of policy revisions are proposed resulting from the completion of
background studies and further review as follows:
·
Urban
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Environmental contamination
– additional details regarding the need for environmental site assessments and
remediation have been added.
·
Transportation - a
transportation schedule reflecting the primary components of the road network
has been added (Schedule ‘BB’ – Transportation Plan). Changes to the road pattern in the draft Plan
include the identification of the Midland Avenue extension and the link between
Old Kennedy Road and Kennedy Road as minor collector roads, and the relocation
of the proposed local road south of Victory Avenue further north, to align with
Aldergrove Drive in anticipation of future signalization
at the Old Kennedy Road/Aldergrove Drive intersection. The transportation policies have been revised
to reflect the completion of the transportation study and the road network
identified on the transportation schedule.
A policy regarding the need for
further study of a possible future pedestrian link across the GO rail line to
the Pacific Mall/Market Village commercial area to the east has also been
included.
·
Developers Group requirement – a Developers Group is
required in this area to ensure that land owners required to provide lands for community
uses such as parks, school and public roads are fairly compensated. The
Secondary Plan will require that development
approvals will be subject to proponents entering into a Developers Group
Agreement or alternative agreement that addresses sharing of community and
infrastructure facilities costs not covered by development charges or by an
approved Community Improvement Plan.
In
addition to the proposed changes to the specific policies outlined above,
editing changes have been made to the text of the draft Secondary Plan, and to
Schedule ‘AA’ – Detailed Land Use Plan.
Appendices I, II and III have been revised to reflect the changes in
land use and density maximums outlined above, and also to reflect updated
persons per unit assumptions. These
changes do not affect the intent of the Secondary Plan.
It is recommended that the
Official Plan Amendment incorporating a Secondary Plan for the Milliken Main Street
Area within the Risebrough
PROPOSED
CHANGES TO THE DRAFT IMPLEMENTING ZONING BY-LAW
The
following are proposed changes to the draft implementing zoning by-law. The revised draft zoning by-law is attached
as Appendix ‘C’.
Changes to
reflect recent Council approved changes to By-law 177-96
In
January, 2005 Council approved a housekeeping amendment to By-law 177-96 which
restructured the by-law, clarified certain provisions and introduced a number
of new provisions reflecting current development standards. One of the changes to the by-law relevant to
the
Certain existing uses to be recognized
A number of use permissions have been added to the implementing zoning
by-law to reflect certain existing uses as follows:
·
·
·
·
·
Holding
provision to include requirement for environmental clearance
In
addition to the holding provisions related to development approvals and
infrastructure capacity, a requirement for environmental clearance on lands to
be developed is proposed to be included as a condition to be satisfied prior to
the removal of the Holding provision. The Holding provision will apply to the
zoning of all of the lands within the area subject to the implementing zoning
by-law, except for certain existing permitted uses.
It is recommended that the draft
implementing zoning by-laws attached as Appendix
‘C’ be finalized and approved.
NEXT STEPS
Secondary
Plan to be approved by Region of
The Region of York is the approval authority
for the Milliken Main Street Secondary Plan.
It is recommended that, upon approval by the Town of
Action and
Financial Strategy (Community Improvement Plan)
In
recognition of the impediments to development within the Secondary Plan Area
(e.g., property configuration, fragmented land ownership, the nature of current
uses, potential site remediation costs), an Action and Financial Strategy is
being prepared by the study consultants to identify actions through which the
Town can pro-actively encourage redevelopment.
One of the elements of the Action and Financial Strategy is the
identification of the Secondary Plan Area as a Community Improvement Project
Area and the preparation of a Community Improvement Plan. This designation will allow the Town to use a number of financial
tools to facilitate redevelopment in the area, including: the ability to
acquire land through purchase or expropriation, and to improve and resell the
lands; and the authority to waive or reduce fees and charges or offer grants
and loans to property owners for improvements to their properties.
One of the
components of the Action and Financial Strategy work is to assess the municipal
fiscal implications of the proposed action strategy, considering both the costs
to the Town and the potential returns, in terms of increased tax revenues, from
any future Town investment in the Secondary Plan Area. A draft analysis is being prepared, and
will be presented to Council in the near future. Following Council endorsement of the
strategy, a Community Improvement Plan will be prepared and presented to
Council. Approval of the Community
Improvement Plan will require a Public Meeting and, potentially, provincial
approval.
In
accordance with Official Plan policies, Community Improvement Project Areas are
designated in the Town through a by-law.
It is recommended that the by-law to designate the Milliken Main
Street Secondary Plan Area as a Community Improvement Project Area, attached as
Appendix ‘D’, be adopted now.
Area
Specific Development Charges By-law
An
Area-Specific Development Charges By-law (ASDC) for the Secondary Plan Area is
currently being prepared by Town staff.
The ASDC will provide for the equitable distribution of the costs of new
infrastructure improvements (e.g., roads, sewer, water, stormwater
infrastructure, etc) within the Secondary Plan Area. A draft of the By-law will be presented to
landowners prior to finalization and consideration by Council. It is recommended that a Public Meeting be
held to consider the draft ASDC once the draft by-law is sufficiently advanced.
Zoning
By-law and Property Standards Enforcement
One of the
components of the Council-endorsed implementation strategy for redevelopment of
the Secondary Plan Area is the enforcement of the zoning by-law and property
standards. The
FINANCIAL CONSIDERATIONS:
None at
this time. Financial
implications will be considered in the Financial Strategy and Community
Improvement Plan, which will be presented and reported on at a later date.
ENVIRONMENTAL CONSIDERATIONS:
The Secondary Plan
protects the existing woodlot and provides for the remediation of potentially contaminated
soils.
ENGAGE 21ST CENTURY CONSIDERATIONS:
The Secondary Plan promotes a
number of key objectives set out in "Engage 21st Century
Markham" by providing for efficient use of infrastructure,
transit-supportive land use patterns and density, compact development and high
levels of architectural and urban design.
BUSINESS UNITS CONSULTED AND AFFECTED:
Internal departments and
external agencies have been involved throughout the study to date and all
concerns have been addressed.
ATTACHMENTS:
Figure
Figure 2 Schedule
‘AA’ – Detailed Land Use Plan
Appendix ‘A’ Status of Development Applications
Appendix ‘C’ Draft Zoning By-laws
Appendix ‘D’ Community Improvement Project Area
By-law
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Valerie Shuttleworth, M.C.I.P., R.P.P. Director of |
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Jim Baird, M.C.I.P., R.P.P. Commissioner of Development Services |
