GENERAL COMMITTEE – COMMUNITY SERVICES & ENVIRONMENT
	TO:	Mayor and Members of Council
	FROM:	Jim Sales, Commissioner of Community and Fire Services
		Stuart Taylor, Director of Strategic Services
	PREPARED BY:	Mavis Urquhart, Manager, Environmental Leadership
	DATE OF MEETING:	June 20, 2005
	SUBJECT:	Recommendations for Horticultural Streetscape Enhancements

RECOMMENDATION:

THAT the staff report entitled “Recommendations for Horticultural Streetscape Enhancements”, dated June 20, 2005, be received;

AND THAT Council direct the following actions be taken:

i) Spend $127,300 as identified in the 2005 Operating budget on the installation of baskets/barrels on both sides of Middlefield Road (between 14^th Avenue and Steeles Avenue) to address immediate needs of the Milliken Mills community for horticultural streetscape enhancements;

ii) That horticultural streetscape enhancements not be introduced onto Elson Street, as requested, since it is a “frontlotted” street;

iii) Streetscape study and plans for low-maintenance/permanent plantings on Denison Street (between the Fire Station near Birchmont Road and Markham Road) and Middlefield Road (between 14^th Avenue and Steeles Avenue) be prepared by a consultant, hired and supervised by Urban Design staff to an upset cost limit of $50,000, to replace existing/approved basket/barrel streetscape enhancements in the long-term;

iv) That $25,000 of the $50,000 program be funded from the 2005 Corporate Contingency Account and $25,000 be funded from the base 2006 basket/barrel Operating Budget;

v) That the Kennedy Road streetscape between Highglen Avenue and Steeles Ave. be reviewed by Urban Design staff during the course of redevelopment and that permanent, low maintenance plantings be secured through development approvals over time to replace the existing/approved baskets and barrels program in the long-term;

vi) The recommended Policy for Horticultural Streetscape Enhancements, as described in this report be brought forward for Council approval together with the streetscape plans described in item iii) in the spring of 2006;

AND THAT no further baskets or barrels of flowers are approved in the Town pending the adoption of a long-term policy for horticultural enhancements.

PURPOSE:

The purpose of this report is:

• to present a draft horticultural streetscape enhancement policy;
• to recommend installation of baskets/barrels on both sides of Middlefield Road in the short-term, but none on Elson Street;
• to recommend that streetscape plans be developed for Denison Street and Middlefield Road where baskets/barrels are recommended to be replaced with permanent, low maintenance plantings in the long-term and that these plans form part of the Policy for Horticultural Streetscape Enhancements;
• to recommend that Urban Design staff review the Kennedy Road streetscape during the course of redevelopment and that permanent, low maintenance plantings such as trees and shrubs, be secured through development approvals over time to replace the existing/approved baskets and barrels in the long-term

A draft of the proposed Policy for Horticultural Streetscape Enhancements is appended to this report as Appendix 1, for information.

BACKGROUND:

A Markham Streetscape program was initiated in 1978 with Markham Main Street and has expanded to include a variety of other areas over time. In recent years staff has received an increasing number of requests for horticultural streetscape enhancements. The following is a brief overview of how the program has expanded:

• 1978 - The Streetscape program was initiated on Markham Main Street because of lack of space for shrub/annual beds. The cost of the materials was subsidized by the BIA and continues to be today
• 1984 - The Unionville Main Street Streetscape was initiated and the cost of materials was subsidized by the BIA and continues to be today
• 1984 - The Thornhill Main Street Streetscape Program was implemented on Yonge Street. Until 2002, the cost of the materials and maintenance on the west side of Yonge Street was subsidized by the City of Vaughan. Currently, the City of Vaughan is responsible for the supply, installation, and maintenance of the streetscape on the west side of Yonge Street, while the Town of Markham continues to supply, install and maintain the east side.
• 1994 - The Milliken Streetscape Program was implemented on Kennedy Road to beautify the Milliken Mills area. The streetscape was subsidized approximately $1500 yearly from an annual compost sale organized by the local ward Councillor
• 1999 - Community Centres were included in the program at the request of the Recreation Department
• 2000 - 2002 The Milliken Streetscape Program was expanded including Denison Street and Kennedy Road
• 2003 - Town Streetscape Program was expanded with units being added in Milliken Mills and implemented in Victoria Square
• 2004 - A total of 2,102 basket/barrel units in the program

Supplying, installing and maintaining baskets/barrels, annual beds, perennial beds, and shrubs is costly and therefore resources should be allocated appropriately taking into account: maximizing the impact of the enhancements; minimizing the costs of the enhancements (including maintenance); and, consistently locating them in accordance with the Town’s long-term plans. There are different costs for different types of horticultural enhancements - baskets and barrels being the most expensive, with the highest maintenance requirements. There were over 2,102 baskets/barrels in the Town in 2004, which require watering once a day during the summer months. The total cost of the horticultural enhancement program in 2004 was approximately $225,000.

In 2005, an additional $128,000 was put into the 2005 Operating Budget for more baskets and barrels of flowers and perennial Town Park beds. There were specific requests at Budget Sub-Committee for additional units: basket and barrels on Middlefield Road from 14^th Avenue to Steeles Avenue; and, baskets and barrels on Elson Street for its entirety. The Committee further requested a policy on baskets and barrels to set the framework for future requests and a long-term plan. Other issues were raised by the Committee, including use of perennials in baskets and barrels, corner treatments, primary intersection treatments, perennial Town park beds and types of species of plantings, which are also discussed in this report.

DISCUSSION:

The following is a description of the key elements of a streetscape enhancement policy contemplated for the Town:

Policy Intent

The intent of a Horticultural Streetscape Enhancement Policy is to give direction to Council and Town staff on the future allocation of resources for horticultural streetscape enhancements (including the type of plantings and where they should be provided). The Policy would not be intended as an equalization policy that will ensure these amenities are evenly distributed across the Town, but would direct them to areas where they will provide the greatest benefit to the Town. As such, the Policy would recognize Milliken Mills as a high needs area since it presently has a preponderance of backlotted streets with concrete fencing and currently has no “main street” area. A draft of the Policy is appended to this report for information (see Appendix 1).

The four typologies that the Policy would apply to are: Main Streets; Community Centres; Backlotted Arterial/Collectors; and, Frontlotted Streets. The following is a description of each of the typologies and how they could potentially be treated:

1. Main Streets

Intensive horticultural streetscape enhancements, such as baskets/barrels and flower beds, have the most impact in mixed use “main street” areas where:

• there are many people walking around who can stop and enjoy the plantings and flowers;
• buildings with shops and restaurants and patios have a strong street relationship;
• there is an existing improved urban streetscape with special paving, benches, attractive lighting features and other amenities to attract people;
• the speed of vehicular traffic is slow or frequently stops so drivers can view the plants and flowers;
• there are opportunities for placing these features where they can be easily seen and enjoyed by the public; and,
• there is an economic benefit to attracting shoppers and visitors to the area.

The Policy is proposed to identify the existing and planned main street areas where the location of basket and barrels would be recommended and would set out criteria for future main street areas that would qualify for this treatment. Council would consider any future requests in light of these criteria.

2. Community Centres and Other Municipal Facilities

These facilities serve as focal points and draw pedestrian traffic from across the community to enjoy the enhancements when using the facility. For this reason community centres are considered appropriate locations for all types of horticultural enhancements and all municipal community centres should continue to be maintained and upgraded to ensure a high and consistent standard of appearance and quality across the Town. More permanent flower beds and expanded shrub beds should be encouraged in these locations to minimize costs. The Policy is proposed to reflect this principle and would provide that Council may choose to enhance the appearance of other municipal buildings, such as Markham Theatre and the Civic Centre at a future date.

3. Backlotted Arterials/Collectors

Horticultural streetscape enhancements (especially ones that require constant maintenance – weeding, watering) are very costly and labour intensive, and can provide limited benefit on arterial and collector roads where there is faster vehicular speeds, minimal pedestrian traffic, few street-oriented businesses and roads extend for long distances. Trees and shrub plantings have the most beneficial impact in these locations. As a result, cost and maintenance of intensive enhancements, such as baskets and barrels should be minimized and they should be used primarily on a temporary basis where there are local conditions that warrant special treatment to enhance the Right of Way until the street trees have matured. Baskets/barrels are recommended on backlotted arterial and collector roads only in limited site specific instances, if no other alternative is suitable and should be coordinated with the concrete fencing replacement program.

The long-term intent of the policy would be to relocate existing barrels/baskets of flowers from all arterial and collector roads and instead provide more substantial lower maintenance/ permanent plantings, such as flowering shrub beds which will have a much stronger visual impact. To facilitate this, it is recommended that streetscape planting plans be developed that would define the types and amount of planting that would be provided along Denison Street and Middlefield Road. It is recommended that the streetscape plans be approved and form part of the Horticultural Streetscape Enhancement Policy. The Kennedy Road streetscape between Highglen Ave. and Steeles Avenue would be reviewed during the course of redevelopment and permanent, low-maintenance plantings would be secured by Urban Design staff through redevelopment over time. These plantings would replace the existing/approved baskets and barrels program in the long-term.

In addition to providing permanent plantings, such as trees and shrubs in areas along arterial/collector roads to replace the baskets and barrels, the Policy could also permit these types of plantings on collector and arterial roads in site specific circumstances where:

· there is existing concrete fencing and in particular, where that fencing is in disrepair or composed of inconsistent materials

· the area is in need of improvement is close to a main intersection

· where there are immature street trees that provide insufficient buffering

4. Frontlotted Streets

Outside of identified “Main Streets”, Town of Markham horticultural streetscape enhancements are not felt to be required on frontlotted streets since it should be the property owner’s responsibility to improve the appearance of their own front yards. While a request was made for horticultural streetscape enhancements (baskets/barrels) on Elson Street, which is a frontlotted street, this is not supported by staff.

Request for baskets/barrels on Middlefield Road and Elson Road

As previously stated in this report, a Horticultural Streetscape Enhancement Policy should identify the appropriate type of horticultural streetscape enhancements and direct where they should be provided. It would not be intended as an equalization policy that ensures these amenities are evenly distributed across the Town. Because Milliken Mills is identified as a “high needs” area, based upon a preponderance of backlotted streets with concrete fencing and currently no “main street” areas, staff support the provision of baskets on Middlefield Road in the short-term.

In the long-term however, when future planned “Main Street” areas are developed in Milliken Mills, implementation of an approved lower-maintenance permanent planting program would be recommended on these roads in the locations currently serviced with baskets and barrels (Denison Street, Kennedy Road and potentially Middlefield Road). Approved planting plans would be developed and incorporated into the Horticultural Streetscape Enhancement Policy for Denison Street and Middlefield Road, prior to Council adoption of the policy. Undertaking the study and preparation of working drawings, including public consultation meetings, is estimated to cost up to $50,000 (approximately $25,000 for the study and $25,000 for the working drawings). It is a recommendation of this report that $25,000 of the $50,000 program is funded from the 2005 Corporate Contingency Account and $25,000 is funded from the base 2006 basket/barrel Operating Budget.

With respect to the Kennedy Road streetscape between Highglen Avenue and Steeles Ave., there will be substantial redevelopment occurring in this area over time and so development of streetscape plans would be premature now. It is therefore recommended that this area be reviewed by Urban Design staff during the course of development approvals and that low maintenance, permanent plantings be secured through redevelopment to replace the existing/approved baskets and barrels program in the long-term.

Finally, the provision of barrels/baskets is not supported on Elson Road since that street is frontlotted and it should be the property owner’s responsibility to improve the appearance of their own front yards.

Other Matters Raised by Budget Sub-Committee

The other issues which were raised by the Committee, including use of perennials in baskets and barrels, corner treatments, primary intersection treatments, perennial Town park beds and types of species of plantings are addressed below:

• The Town uses annuals in baskets and barrels because they exhibit a fuller, more constant show of colour throughout the season which is the hallmark of the streetscape program. While the use of perennials would appear to be more advantageous (they require less maintenance and have a multi-year life span), they also cannot over-winter in baskets and barrels and would have to be watered just as often as annuals;
• Shrub beds are being added to arterials in accordance with recommendations from the Markham Beautification Program;
• Corner beds are being addressed by the Colour Your Corner Program through Communities in Bloom initiative; and,
• Town staff has planted 16 native species beds since 2003 and will plant an additional 15 beds in 2005.

FINANCIAL CONSIDERATIONS:

$128,000 was put into the 2005 Operating Budget for more baskets and barrels of flowers and perennial Town Park beds. There were specific requests at Budget Sub-Committee for additional units: basket and barrels on Middlefield Road from 14^th Avenue to Steeles Avenue; and, baskets and barrels on Elson Street for its entirety. This report recommends that:

• the Town spend $127,300 as identified in the 2005 Operating budget on the installation of baskets/barrels on both sides of Middlefield Road (between 14^th Avenue and Steeles Avenue) to address immediate needs of the Milliken Mills community for horticultural streetscape enhancements; and,

• that horticultural streetscape enhancements not be introduced onto Elson Street, as requested, since it is a “frontlotted” street; and,

• no further baskets or barrels of flowers are approved in the Town pending the adoption of a long-term policy for horticultural enhancements.

Streetscape plans showing low-maintenance/permanent plantings for Denison Street (between the Fire Station near Birchmont Road and Markham Road) and Middlefield Road (between 14^th Avenue and Steeles Avenue) that will replace existing/approved basket/barrel streetscape enhancements in the long-term, will form part of the policy. It is recommended that they be prepared by a consultant and that their development be supervised by Urban Design staff. The cost of this work will be to an upset limit of $50,000 and it is recommended It is a recommendation of this report that $25,000 of the $50,000 program is funded from the 2005 Corporate Contingency Account and $25,000 is funded from the base 2006 basket/barrel Operating Budget. Permanent plantings to replace the barrel/basket program on Kennedy Avenue would be secured by Urban Design staff through the course of redevelopment.

BUSINESS UNITS CONSULTED AND AFFECTED:

· Strategic Services

· Planning & Urban Design

· Parks Department

· Operations

· Finance Department

CONCLUSION:

In summary, this report recommends that a basket/barrel program be installed on Middlefield Road in Milliken Mills at this time. Also, that a permanent/low maintenance streetscape planting plan for Denison Street and Middlefield Road be developed to replace the basket/barrels in those locations in the future when Milliken Mills “main streets” are developed. Those planting plans would form part of the new Horticultural Streetscape Enhancement Policy and be brought forward to Council for approval, together with the proposed Policy, as described in this report.

It is also recommended that Kennedy Road streetscape between Highglen Avenue and Steeles Ave. be reviewed during the course of redevelopment by Urban Design staff and that permanent, low maintenance plantings are secured through redevelopment over time to replace the existing/approved baskets and barrels program. Any plantings within the boulevard would be subject to approval of the Region of York since Kennedy is a regional road.

Stuart Taylor Director of Strategic Services

Jim Sales Commissioner of Fire and Community Services

ATTACHMENTS:

Appendix 1: Policy for Horticultural Streetscape Enhancements

Map 1: Map showing existing Horticultural Streetscape Enhancements in Milliken Mills

Map 2: Map of Town showing Requested Horticultural Streetscape Enhancements and Future Main Streets in Milliken Mills

Q:\Strategic Services\Shared Data\Reports\CS&E\Horticulturalenhancements.doc

APPENDIX 1

DRAFT Horticultural Streetscape Enhancement Policy for the Town of Markham

Council recognizes the visual and economic benefits of an enhanced streetscape program for the Town of Markham over and above a street tree planting program. To guide Council and Staff in allocation of limited additional resources that aesthetically improve the attractiveness of the Town and promote main streets, Council encourages selected provision of horticultural streetscape enhancements, such as baskets, barrels, shrubbery, in accordance with the following policy:

Guiding Prinicples

· Horticultural streetscape enhancements should be directed to areas where they will provide the greatest benefit to the community rather than ensuring they are evenly distributed across the Town

· Should provide the maximum community benefit while minimizing costs and maintenance requirements

· Where financial benefits for businesses result from Horticultural Streetscape Enhancements in main street areas, financial contributions to the cost of providing these amenities should be made by the business community

A. Main Streets

Horticultural streetscape enhancements on “main streets” are intended to beautify and enhance the urban streetscape for pedestrians, shoppers, tourists, businesses and others. The following policies apply to these areas:

i) Horticultural streetscape enhancements which include higher maintenance, more intensive plantings (such as baskets, barrels) should continue to be directed to existing and future “main streets”, including Village of Unionville, Markham Village, Yonge Street/Bay Thorn Drive/John Street (Thornhill), Victoria Square;

ii) Old Kennedy Road (between Denison Street and Steeles Avenue ) and Markham Road area (between Highglen Avenue and Denison Street ) are future “main streets” and qualify for future intensive horticultural streetscape enhancements;

iii) Cost sharing for horticultural streetscape enhancements with Business Improvement Areas (BIA’s), ratepayers’ groups and benefiting property owners will be encouraged for all existing and future “main streets”, including Unionville and Markham Villages, Yonge Street/Bay Thorn Drive/John Street (Thornhill), Victoria Square, Old Kennedy Road (between Denison Street and Steeles Avenue ) and Markham Road area (between Highglen Avenue and Denison Street )

iv) Any future requests for horticultural streetscape enhancements on main streets should be evaluated based upon whether an area meets the criteria for a “main street” as follows:

· it is mixed use in nature (including land uses such as restaurants, retail, and personal service shops, as well as residential uses)

· oriented to pedestrians

· features “ human scale” buildings with a strong street relationship

· has slow vehicular traffic speeds

· can participate in a financial partnership with the Town to share the cost of providing the horticultural enhancements

· offers good visibility and exposure for the horticultural improvements

· features an approved or existing improved urban streetscape (including such elements as special paving, benches, attractive lighting features, etc.) which will be complemented by the horticultural enhancements.

B. Community Centres and Other Municipal Facilities

Horticultural enhancements at Community Centres and other municipal facilities are intended to highlight those community facilities. The following policies apply:

i) All types of horticultural enhancements should be directed to these locations, including higher maintenance, more intensive plantings (such as baskets/ barrels and flowerbeds)

ii) High and consistent standards of horticultural enhancements are encouraged for Community Centres and other municipal facilities, as identified by Council

C. Backlotted Arterials/Collectors

Horticultural enhancements on Backlotted Arterials/Collectors are intended to provide substantial landscape elements that can be appreciated by vehicle drivers and serve to screen unattractive areas. The following policies apply to these areas:

i) Horticultural streetscape enhancements for these areas should include lower maintenance, permanent, substantial plantings, such as shrubs, and be mainly directed to backlotted arterials/collectors with concrete fencing and, in particular, those areas where:

• fencing is in disrepair
• fencing is composed of inconsistent materials
• the location is close to a main intersection
• there are immature street trees

ii) Barrels baskets and other high cost/high maintenance horticultural enhancements should be permitted on backlotted arterials/collectors only in extenuating circumstances and on a temporary, or very limited basis to mitigate specific streetscape issues;

iii) All proposals for horticultural enhancements on backlotted arterials/collectors should be coordinated with the fencing replacement program;

iv) Existing baskets/barrels shall be permitted in Middlefield Road (between 14^th Avenue and Steeles Avenue) and on Denison Street (between the Fire Station near Birchmont Road and Markham Road) until such time as the future main street areas on Old Kennedy Road and Markham Road are provided with horticultural streetscape enhancements and the streetscape improvements for Denison Street and Middlefield Road, as shown on attachments 1 and 2 are installed (note: these attachments will consist of streetscape plans showing low maintenance/permanent plantings).

v) Existing baskets/barrels shall be permitted along Kennedy Road between Highglen Avenue and Steeles Ave., until such time as the future main street areas on Old Kennedy Road and Markham Road are provided with horticultural streetscape enhancements and permanent, low maintenance plantings are secured in this location through redevelopment to replace the existing/approved baskets and barrels.

D. Frontlotted Streets

The Town of Markham standard street tree program will continue to apply along front-lotted streets. Additional horticultural enhancements by the Town are not encouraged frontlotted streets.

June 20, 2005