Thornhill Heritage Conservation
District Plan Review
Study Terms of Reference
April 2004
1.0 Introduction
1.1 Background Information
The Town of Markham is very conscious of preserving its past as reflected in the Town’s motto of “Leading While Remembering”. The legacy of cultural heritage resources and areas remaining in the Town is valued and protected. The Town has three heritage conservation districts based on the former historical villages of Thornhill, Markham Village and Unionville). Each of the established districts has an approved heritage conservation district plan, adopted by Council, to help guide development activity, and related matters, within the respective district.
The Thornhill Heritage
Conservation District was created in 1986 and is the Town’s oldest heritage
district. The District Plan was adopted
by Council after extensive review and re-drafting between the years 1984-86. The overall goal of the District Plan is to
provide policies and guidelines in order to ensure the continuation and
enhancement of the district’s historical, village-like ambience while providing
for contemporary needs. The District Plan has
provided direction for re-development projects for the last eighteen
years. Minor revisions were made to
selected policies in the District Plan in 1994 and 1999. However, a number of systemic problems continue to exist.
1.2 Issues of Note
After the creation of the Thornhill Heritage District, the Town adopted heritage district plans for both Markham Village (1991) and Unionville (1997). These later plans, in particular the Heritage District Plan for Unionville, are comprehensive policy documents that are user-friendly, provide clarity and are illustrative. In comparison, the Thornhill Heritage District Plan fails to provide adequate guidance or clarity in a number of policy areas and is difficult to implement. The issues of concern related to the District Plan include:
·
The guidelines are not clear and often require municipal staff or the
heritage advisory committee to interpret them;
·
In some policy areas, guidelines are non-existent. For example, there is little guidance given
on appropriate direction for alteration to non-heritage properties.
·
Some policies and guidelines require updating as situations and
procedures have evolved since the mid-1980s or require removal from the Plan as
they are no longer needed or relevant.
·
The Plan does not recognize changes in technology or the evolution of
community planning philosophy in Markham that has increased the emphasis on
good community and building design.
·
The Plan is not user-friendly in its format and there are few
illustrations or graphics to explain concepts.
·
The lack of clarity in the Plan can make it difficult for applications
to be reviewed in a fair and consistent manner.
Over the last decade in particular, a number of issues have been raised which have challenged both the local community and the District Plan. These issues of note include: the severance of larger lots, the appropriate design and size of new infill construction, the treatment of non-heritage properties and inappropriate alterations to heritage properties. Some of the above issues have been extremely controversial and have, on occasion, divided community opinion.
Also, since the District Plan was
approved, a number of municipal and planning policies have been adopted which
have had varying degrees of impact on the Heritage District including the
Thornhill Secondary Plan and new Heritage Main Street commercial policies in
the Official Plan which affect properties on Yonge Street, as well as the
Town’s new sign by-law and an infill housing zoning by-law. Currently, the Town in partnership with the
City of Vaughan has retained a consultant to undertake a Thornhill Main Street
Study which includes a component of the Heritage District, with the intent
being to establish guidelines and streetscape recommendations to strengthen the
sense of place and improve the physical attractiveness of the Yonge Street corridor. In addition, the Region of York is
introducing a Yonge Street transit system that will impact the Heritage
District in a number of ways including changes to the streetscape environment
and a potential increase in density along Yonge Street.
The time
has come to review all of these issues and their implications, and to provide a
new framework to guide development, redevelopment and alterations of properties
and streetscapes located in the Heritage District.
1.3
Purpose of Study
The purpose of this
study is to undertake a comprehensive review of the existing policies and
guidelines included in the Thornhill Heritage Conservation District Plan, and
revise the document as required, including the introduction of new policies
concerning subject matter that may not be adequately addressed in the current
plan. The objective of the study is to
produce a new Heritage District Plan that is illustrative and attractive in its
layout and presentation, clear and concise in its message, and recognizes the needs
of its intended audience.
The Unionville Heritage Conservation District Plan should be used as a template for the new Thornhill Plan so as to have a consistent approach to heritage district planning throughout the municipality.
Specifically, the study will:
a) Review the existing heritage district plan policies, guidelines, processes and procedures, as well as other relevant policy documentation;
b) Identify issues of concern related to the Plan, including those of the local community through public consultation;
c) Formulate and assess options to address deficiencies and identified areas of concern;
d) Make recommendations for appropriate changes to the policies and guidelines of the Plan;
e) Create a new, user-friendly Thornhill Heritage Conservation District Plan based on the Unionville model.
1.4 Study Area Boundaries
The study area for this
project is the boundary of the existing Thornhill Heritage Conservation
District.
1.5 Community Interest
Two community groups in
the local area take an active interest in the protection of this heritage
district. The Society for the
Preservation of Historic Thornhill (SPOHT) is a community-based,
heritage group formed in 1974, and is committed to preserving the surviving
remnants of 19th and early 20th C Thornhill.
In addition, the
boundary of the local property owners association known as Ward 1 (South)
Thornhill Residents Inc. includes the Thornhill Heritage District, and the
association takes an active interest in events occurring in the District.
1.6 Available Information
The following background
documentation is available for review at the municipal offices:
·
Thornhill Heritage Conservation District Study and Plan (including
Building Inventory), 1986
·
Unionville Heritage Conservation District Plan, 1997
·
Town of Markham Official Plan (Revised 1987) Office Consolidation
(Heritage policies, Heritage Main Street commercial policies)
·
Thornhill Secondary Plan (Markham)
·
Town of Markham Zoning By-laws
·
Urban Design Guidelines for Commercial Corridors
1.5 Public Consultation
The Thornhill Heritage
Conservation District Plan review will require interaction with residents and
property owners through a public consultation process in order to determine
community expectations, obtain public input on issues
and policies, and to review options.
The Town
will also form a Thornhill District Plan Advisory Committee comprised of Town
staff, elected members of Council, members of Heritage Markham (Council’s
advisory committee on heritage matters) and representatives from the local
community and community groups. The
purpose of the advisory committee will be to assist staff and the consultant by
providing feedback on proposed policies and guidelines. Meetings will be convened at the appropriate
stages of the study process. Planning,
Heritage and Urban Design staff will also participate as required. A minimum of three public
consultation/information meetings will be required.
Due to the
controversial nature of some of the issues and past experiences of some
residents, the Town will retain a professional Facilitator who will work with
the selected consultant team and assist in the community consultation component
of the project to help build community consensus.
2.0 Study Structure
2.1 Anticipated Work Program
The final sequence and detail of study tasks will be determined in consultation with the successful consultant and the Town’s consultation facilitator.
PHASE
ONE - ADDRESSING
THE ISSUES
A Organization Meeting
- Heritage Section staff
- confirm study methodology
- provide background information and documentation
B Review of Existing District Plan
B.1 Policy Review
- goal and objectives
- general policies
- architectural and historical building policy
- new construction policy
- building treatment policy
- signs and traffic policies
- streetscape and landscape policies
- land use policy
- policies for specific areas, site and projects
- community pride and information policies
B.2 Detailed Design Guideline Review
B.3 Review of Implementation Matters
B.4 Review of Property Inventory
C Review of Other Relevant Materials
C.1 Planning – Markham Official Plan (revised 1987), Thornhill Secondary Plan, Thornhill Main Street Study, Zoning By-law
C.2 Heritage – Unionville and Markham Village heritage district plans, Heritage Markham policies (windows, lot severance, etc), specific Town-wide heritage programs, Heritage District Entry Signage Program
D Community Consultation
D.1 Study Advisory Committee – identify issues of concern to be addressed with the assistance of the Town’s facilitator
D.2 Local Community Meeting- identify issues of concern to be addressed with the assistance of the Town’s facilitator
E Review of Issues
E.1 Identification of key issues
E.2 Formulation of options for consideration to address each issue
E.3 Prepare Discussion Paper
E.4 Recommended Approach
F Consultation on Discussion Paper
F.1 Meet with Study Advisory Committee
F.2 Meet with Heritage Markham, Council’s advisory committee on heritage matters
F.3 Meet with local community to discuss options and recommended approach with the assistance of the Town’s facilitator.
G Presentation to Development Services Committee
H Implement Recommended Approach (as revised)
I Building Classification
I.1 Classify the buildings in the District into one of three categories: Heritage, Heritage Complementary and Non-Heritage
I.2 Illustrate the classification on mapping
J District Property Inventory
J.1 Prepare a new District Property Inventory
- address
- date of construction
- architectural attributes
- historical attributes (using available research already available)
- current photograph (the consultant will not be required to take photographs of each property as this has already been undertaken)
- archival photograph (if available)
K Format for New Plan
Using the Unionville Heritage Conservation District Plan as a template, create a new Thornhill Heritage Conservation District Plan. It is envisioned that the new plan will provide policies and general design guidelines indicating the type of change considered appropriate for heritage buildings, new construction, heritage complementary buildings, non-heritage buildings and streetscapes. The Plan will reflect the following factors:
a) Limit the Length of the Document – the final document will be separated into The District Plan and the District Building Inventory. A different audience for each document exists.
b) Orientation of the Document – Landscape format reads less like a formal planning report and allows better graphic layout.
c) A User Guide – a one-page user guide to provide quick reference for the benefit of the occasional or first time user.
d) Simplify the Plan Layout – Divide the Plan into four distinct sections each geared to some extent to a different audience. Part A provides a District overview, which is primarily introductory in nature, explaining district designation and the Plan’s goals and objectives. Part B presents the District’s policies including policies for Buildings (heritage, new buildings, alterations/additions to non-heritage buildings, commercial buildings, landscape features). Other policy sections include: Streetscape and Open Space: Special Sites and Projects; and Planning and Development Issues. Part C – Implementation addresses the application review processes, enforcement, monitoring, financial assistance and public awareness initiatives. Part D is the design guidelines and is the part most people will use.
e) Minimize Text – to the extent possible, textural material should be kept to a minimum. Policies and guidelines to be clear, succinct and readily understandably without interpretation.
f) Photographs and Illustrations – use archival and current photographs throughout the document to illustrate a concept and provide visual relief. Illustrate as many elements of the design guidelines as possible to help the reader better understand the concept (a number of the Unionville illustrations can be re-used with some modification and new illustrations required)
g) Mapping – a standard map is to be used throughout the document to illustrate a number of factors including boundary delineation, building classification, special sites, etc.
L Consultation – Review of Draft Plan
L.1 Review Plan with Study Advisory Committee
L.2 Review Plan with Heritage Markham, Council’s advisory committee on heritage matters
L.3 Review Plan with local community with the assistance of the Town’s facilitator.
M Final Revisions
N Presentation to Development Services Committee
O Submission of Final Version of the Plan/ Deliverables
2.2 Study Products
In Phase One of the project, the main anticipated product is the Issues Discussion Paper with a recommended approach. In Phase Two, the main product will be the new Thornhill Heritage Conservation District Plan based on the Unionville template. This concept will require illustrations to be produced by the consultant team. The final product will be provided in electronic format in addition to the required printed copies.
The consultant will be expected to report on progress through meetings with staff and the Study Advisory Committee and, in conjunction with the Town’s facilitator, undertake a public consultation process with the local community throughout the study. The consultant also will be required to make two presentations to Heritage Markham and two presentations to the Development Services Committee of Council (completion of phases).
The deliverables for this project are as follows:
Phase One – Issues Discussion Paper – 20 bound copies and one unbound copy.
Phase Two – Draft Heritage District Plan – 20 bound copies and one unbound copy.
Final Heritage District Plan – 25 bound copies, one unbound copy and one electronic copy
3.0 Submission Information
3.1 Consultant
The study requires a consultant or consultant team with knowledge in heritage district policy planning, community consultation, urban design and architectural design skills and illustrative/graphic capability. Close involvement with municipal staff involved in heritage planning and urban design/landscape is expected. The following aspects will be considered in evaluating consultant proposals:
· Study work program – content and tasks
· Proposed methodology, work program and scheduling
· Relevant experience
· Availability of key staff
· Public consultation experience
· Related projects
· Graphic capabilities and presentation skills
· Provision of value added services
· Budget and Targets
3.2 Budget, Schedule and Staffing
The Town of Markham has allocated a maximum budget of $45,000 (inclusive of GST) for this component of the Thornhill Heritage Conservation District Plan Review Study. The Town has established a separate budget to retain a professional facilitator who will work with the successful consultant.
The study should be completed within six (6) months of the execution of the study contract. It will be extremely important to undertake the first public consultation exercise to identify issues of concern to the local community prior to the traditional summer vacation months.
The consultant’s detailed budget will identify all professional fees, sub-consultant fees, disbursements, contingencies and pertinent taxes, plus a payment schedule for each study phase. The work schedule outline will detail task timing, task sequence and meeting schedules. The staffing plan will identify the role and responsibilities of the consulting team members and indicate the extent and schedule of any involvement required by municipal staff in the study process.
3.3 Contract
The Town of Markham Planning Department will administer the study contract. The consultant will enter into a standard contract with the Town. The contract will incorporate a detailed work program, budget and payment schedule. Invoice requirements will be specified in the contract. No monies shall be paid to the consultant unless in accordance with the provisions of the contract. The terms of the awarded contract will be forwarded following the selection of the successful consultants.
The Town of Markham will retain the intellectual property rights for all work undertaken on behalf of this project.
The project will be managed by the Heritage Section of the Planning Department.
Q:\Development\Heritage\SUBJECT\thornhill\District
Plan Review 2004\Terms of Reference 2004.doc