July 10, 1998

To:North York Community Council

From:Bryan Tuckey, Acting Commissioner of Planning

Subject:INTERIM REPORT: ZONING FRAMEWORK

Official Plan and Zoning Amendment Application UDOZ-97-28

Heathmount A.E. Corporation

(Destination Technodome)

Ward 8 (North York Spadina)

Purpose:

The purpose of this report is to:

·provide an update on the Destination: Technodome application;

·illustrate, for the information of Council and the community, a zoning framework, as set out in Appendix 1 of this report, that could be applied to the Destination: Technodome proposal, based upon the draft Dowsnview Area Secondary Plan. This framework will assist Council, applicants and the community to understand how the Secondary Plan will be implemented for this significant proposal and provide certainty for all parties with respect to the implementation process; and

·to identify matters that are outstanding and must be addressed by the landowner and/or applicant prior to the enactment of a Zoning By-law to permit Destination: Technodome.

Recommendations:

It is recommended that:

(1)This report be received as information.

Background:

Proposal

Heathmount A.E. Corporation is seeking an amendment to the Zoning By-law to permit "Destination Technodome", a 236,301m² (2,543,611sq.ft.), year-round sport and entertainment facility (See Schedules A - H). Destination: Technodome provides opportunities for residents and visitors to the Toronto area to enjoy and participate in a variety of activities such as downhill skiing, snowboarding, hockey, tennis, basketball, volleyball, swimming, canoeing and kayaking. It features interactive and virtual reality attractions and rides, an IMAX theatre, a rainforest, cinemas, themed retail stores, restaurants, a 12,500 seat, multi-function arena and three hockey arenas that would provide a venue for the Metropolitan Toronto Hockey League, which has been incorporated into the proposal. Destination: Technodome will have a maximum height of 42 metres (138 ft.) at its highest point, adjacent to the W.R. Allen Road/Sheppard Avenue intersection. As proposed, the Destination: Technodome would have a footprint approximately 15% larger than the Skydome.

Destination: Technodome would be located on an approximate 30ha (75.8ac) parcel of land at the south-west corner of Sheppard Avenue and the W.R. Allen Road. The site has direct access to Sheppard Avenue and W.R.Allen Road and can be linked to Highway 401 via the W.R. Allen Road. The site is also adjacent to the Downsview Subway Station. To the north and east the lands are designated Industrial (IND) and to the north-east the lands are designated Sheppard West Commercial (SW-COM) (See Schedule "A").

Destination:Technodome will complement and enhance the Federal Government's initiatives and the City's interest to create a unique mixed use, urban park and open space on the lands in the Downsview Secondary Plan area. Destination Technodome will also assist in achieving a number of economic benefits including the creation of construction jobs, opportunities for permanent, high-tech, management and service employment, additional tax revenue, and the expansion of tourist attractions in the Toronto area.

North York Official Plan

Destination Technodome is consistent with the North York Official Plan. The site forms part of a larger area at the Sheppard Avenue/W.R. Allen intersection that has been identified as a proposed sub-centre by North York's Urban Structure Map A-2 (Potential Reurbanization Areas). The proposal is consistent with the City's reurbanization policies which support efforts to direct more intensified land uses, such as Destination: Technodome, to centres, nodes and arterial corridor areas that are well served by transportation facilities.

Downsview Area Secondary Plan

Destination: Technodome would occupy two-thirds of an approximate 45ha (112 acre) parcel of land to be designated for sport and entertainment purposes by the Downsview Area Secondary Plan (See Schedule "B"). This designation provides for a range of sport and entertainment uses and intends that those uses, which generate the highest volume of visitors and traffic, be located in close proximity to high volume roads and the City's subway system. The proposed Destination: Technodome is consistent with these policies since:

·it would be located immediately adjacent to Sheppard Avenue and W.R. Allen Road, arterial roads that are designed to carry high volumes of vehicles;

·Destination: Technodome would be located in close proximity to Highway 401 and a direct route to Highway 401 can be provided; and

·Destination: Technodome would be located near the Downsview TTC Station, a transfer point for TTC buses and the subway system. A direct connection to the subway station would be provided.

The Secondary Plan provides for a maximum density of 1.0 FSI, which is approximately 306,790m² (3,302,368sq.ft.) on the Destination: Technodome site. The applicant's proposal has a density of approximately 0.8 FSI which is approximately 236,301m² (2,543,611sq.ft.). The remaining 0.2 FSI or approximately 70,489m² (758,762sq.ft.), could be achieved through a re-zoning, subject to meeting all of the provisions of the Plan regarding transportation, municipal servicing and parking impacts, and in light of the results of the monitoring program.

Community Consultation

Detailed analysis of the Destination: Technodome proposal by City staff and the community has been undertaken as part of the review of development plans for the Downsview area and in conjunction with the preparation of OPA 464. The Destination: Technodome proposal has been discussed at many of the weekly meetings of the Downsview Community Advisory Panel. Plans for Destination: Technodome have also been reviewed by the public at community consultation meetings held in August, 1997 and February, May and June, 1998. Appendix 2 provides an overview of the comments received from the public concerning Destination: Technodome.

As a result of the community consultation to date, a clearer picture of the development standards to be established through any zoning by-law amendment, the design elements to be achieved through site plan approval and the matters to be secured through agreements between the City and the landowner and/or applicant has emerged. Further, outstanding matters that need to be addressed by the applicant and/or landowner can now be identified.

Discussion:

1.0Zoning Framework

The intent of the zoning is to implement the Downsview Area Secondary Plan to permit sport and entertainment uses on lands shown on Schedule "B". A site-specific amendment to Zoning By-law 7625 for the Destination: Technodome lands would :

·establish permitted uses on the lands that are contemplated for sport and entertainment purposes and restrict certain uses;

·limit the size of specific uses;

·establish development standards including maximum gross floor area, height, amount of vehicular and bus parking and yard setbacks.

On lands proposed for Destination Technodome as shown on Schedule "D", it is appropriate to delete the existing "Airport Hazard (A)"zone which permits uses associated with the Department of National Defence, and add a new zone category. On all remaining lands designated for sport and entertainment purposes, the existing zoning would be amended to limit the use to existing uses and to permit a park and open spaces. Appendix 1 sets out a framework for the zoning to be applied to the Destination: Technodome. The uses to be permitted and the standards to be established are described below:

1.1Permitted Uses

I)On lands proposed for Destination Technodome the new zone category would permit sport and entertainment uses and accessory uses including administration offices

ii)Specific retail uses will be restricted based upon the findings of the City's review of a market impact analysis. The retail component of Destination: Technodome would be restricted to exclude supermarkets, department stores, department store outlets and clearance centres, household furnishing stores other than accessory and/or theme-related or recreational and entertainment oriented merchandising, automotive parts and service related stores and home improvement outlets.

1.2Gross Floor Area (GFA)

The applicant has proposed a gross floor area of 205,626m² (2,213,416sq.ft.) devoted to sport and entertainment uses, retail and restaurants, administration, servicing and circulation. This GFA has been used as the basis for the City's transportation analysis and the applicant's Traffic Impact Study. The approximate 30,675m² (330,195 sq.ft.) devoted to mechanical and loading areas, does not generate traffic and is necessary to service the proposal.

i)The zoning by-law would limit the total gross floor area on the site to approximately 236,301m² (2,543,611sq.ft.) and specifically limit the total GFA for the sport and entertainment uses and the administration/servicing uses to approximately 177,756m² (1,913,416sq.ft.). The themed retail and restaurants would be limited to an approximate maximum GFA of 27,870m² (300,000 sq.ft).

ii)Based upon a Traffic Impact Study, the size of the proposed multi-function arena will be limited to a maximum seating capacity. (a 12,500 seat arena has been proposed and is being reviewed)

iii)Any increase above the maximum GFA will require an amendment to the Zoning By-law. Council may require that appropriate transportation impact studies be undertaken by the proponent to ensure that additional development can be accommodated by the existing regional transportation system or feasible and desirable improvements to it.

iv)Gross floor area will be defined as the total area of all the floors in a building above or below grade, measured from the outside of the exterior wall but excluding car parking areas within the building.

1.3Height

The maximum height of all buildings and structures, including mechanical, on lands designated for sport and entertainment purposes can not exceed the height limitations based on Transport Canada criteria for the Downsview Airport. The Destination: Technodome building has been designed and located to meet the Federal requirements. It is below the maximum height restriction as shown on Schedule "E". Destination: Technodome would have a maximum height of 42 metres (138 ft), approximately 12 storeys, at the Sheppard Avenue/W.R.Allen intersection.

1.4Parking

Approximately 5,000 automobile and 75 bus parking spaces have been proposed. The total amount of required vehicular and bus parking spaces will be determined, based in part, upon the applicant's site-specific Parking Demand Study completed to the satisfaction of the City. This study must demonstrate that sufficient parking can be accommodated. The applicant has submitted a Parking Demand Study for Destination: Technodome. A full review of the parking demand study is required prior to the application being considered by Council.

In keeping with Council's motion of May 27, 1998, the Toronto Parking Authority is to review and report on the feasibility of building and managing parking for both private and public recreational uses on the Downsview lands. Further discussions between the City, landowner and the applicant are necessary.

2.0Matters to be Finalized Before A Zoning By-law is Enacted

While the zoning by-law would set out the permitted use on the lands and the development standards to apply, other important planning matters will need to be finalized before a zoning by-law for Destination: Technodome will be enacted. These matters included:

2.1Urban Design

Destination: Technodome must be consistent with the Downsview Urban Design Guidelines. Sufficient detail regarding the proposed Destination: Technodome is required to ensure these guidelines can be met. Appendix 2 sets out matters to be addressed. An understanding of how the urban design elements are incorporated into the proposal is required prior to the enactment of a zoning by-law, with further detailed review of the urban design matters undertaken at the time of site plan approval. A Section 41 agreement would ensure these matters are incorporated into the development.

2.3Road Network and Transportation Facilities

The impact of traffic upon the road network must be known. The City has developed a transportation network in support of the draft Downsview Area Secondary Plan which accounts for existing traffic flows and accommodates the traffic generated from new developments including Destination: Technodome. New roads and infrastructure improvements would be provided, including, but are not limited to:

·a new interchange and directional ramp on W.R. Allen Road., south of Sheppard Ave to provide direct vehicular access to the Technodome site;

·a new road that extends from the Transit Road/W.R.Allen Road intersection to Chesswood Avenue;

·a direct, grade-separated pedestrian connection to the Downsview Subway Station; and

·intersection improvements at Sheppard Avenue and W.R.Allen Road including signalized entrance/exit points on Sheppard Avenue and W.R. Allen Road.

A Traffic Impact Study is required to demonstrate, to the satisfaction of the City, that the proposal can be accommodated within the proposed road network and the feasible and desirable improvements identified by the City. A full review of the Traffic Impact Study, submitted by the applicant, including the impacts on the road network, must be completed prior to the application being considered by Council.

The landowner will be required to provide the necessary roads and infrastructure improvements. A Section 37 agreement(s) will secure the provision of new roads to City standards, the required street landscaping and furnishings, the timing for the construction of the roads and road improvements and the implementation of parking and traffic management. Details respecting specific matters to be addressed by agreements with the City will be detailed in a final Recommendations Report. The Destination: Technodome proposal relies upon road improvements that require further environmental assessment, currently underway.

2.4Servicing

The impact upon municipal servicing facilities and storm water management must be known. Desirable and feasible improvements to municipal servicing infrastructure have been identified in support of the draft Downsview Area Secondary Plan. The applicant has submitted preliminary engineering studies to demonstrate that the proposal can be accommodated through existing and proposed improvements to municipal water distribution, sanitary sewer infrastructure and storm water management facilities. A complete review of the applicant's engineering reports is necessary before the application can be considered by Council.

All works, modifications and required infrastructure will be required to be located, designed and constructed to the City's satisfaction and conveyed to the City free of encumbrances and at no cost to the City, prior to the occupancy of the development. Storm water management facilities must be provided to the satisfaction of the City in consultation with the Toronto and Region Conservation Authority. The provision for, and the timing of delivery for new infrastructure, improvements and storm water management facilities and easements for such facilities and services will be secured, through Section 37 agreement(s) with the City. Details respecting specific matters to be addressed by agreements with the City will be detailed in a final Recommendations Report.

2.5Other matters

Agreement(s) under Section 37 must also be executed to secure the provision of public art, the enhancement of the Wilson Avenue streetscape and the timing for the occupancy of the building. Details respecting specific matters to be addressed by agreements with the City will be detailed in a final Recommendations Report.

3.0Next Steps

The residents and business community have taken an active interest in Destination: Technodome and contributed to the principles established in this zoning framework which has been put forward at this time to clarify for all parties how the Secondary Plan will be implemented through zoning. This framework will be further refined over the next few months and the following matters will need to be addressed by the landowner and applicant before the proposal is considered by Council:

i)Submission of additional information required for a complete review and assessment of both the Traffic Impact Study and Parking Demand Study;

ii)Confirmation from the Ministry of Transportation on the required road network improvements and traffic movements relative to Highway 401;

iii)A complete review and assessment of the findings of preliminary engineering reports;

iv)Toronto Transit Commission agreement, in principle, to the proposed grade-separated pedestrian link to the Downsview Subway Station and concurrence with the proposed road network required for the build-out of the Downsview Secondary Plan area;

v)Approval in principle by the Works and Emergency Services Department of the encroachment of the grade-separated pedestrian link on W.R. Allen Road and Sheppard Avenue and confirmation by the Department of National Defence, owner of the W.R. Allen Road;

vi)Submission of a plan for zoning purposes that indicates the total land area and size, the building setbacks, easements, access points, number of parking spaces, parking layout, location of pedestrian routes, loading facilities, and general consistency with the Downsview Urban Design Guidelines; and

Conclusions:

This report illustrates for the information of Council and the community, a zoning framework that could be applied to the proposed Destination: Technodome, based upon draft Official Plan Amendment 464 (Downsview Area Secondary Plan). This report also identifies matters that must be addressed prior to a final Recommendations Report on Destination: Technodome including matters that must be finalized before a zoning by-law can be enacted.

Contact Name:

Russell Crooks, Planner tel.: 395-7108

Appendix 1

Zoning Framework:

Destination: Technodome

1.0Schedules "B"(Key Zoning Map), Schedule "C" (Detailed Zoning Map) and Schedule "D"(Airport Hazard Zoning Map) would be amended to delete the existing "Airport Hazard (A) Zone" on lands intended for the Destination: Technodome and a new zone category would be added.

2.0On all remaining lands designated for sport and entertainment purposes, an exception would be appended to the existing "A" zone to recognize the existing uses and to permit a park and open spaces.

Zone Provisions

3.1Permitted Uses:

The permitted uses would include:

·sport and entertainment uses (including a multi-function arena, not to exceed a maximum seating capacity of approximately 12,500 seats (currently under review).

·themed retail and restaurants (limited in gross floor area)

·accessory uses including administration offices;

3.2Gross Floor Area (GFA)

i)The total GFA permitted on the lands would not exceed approximately 236,301m² (2,543,611sq.ft.).

ii)The total GFA devoted to the sport and entertainment uses and the administration/servicing uses would not exceed approximately 177,756m² (1,913,416sq.ft.).

iii)The total GFA devoted to themed retail and restaurants would not exceed 27,870m² (300,000 sq.ft).

iv)Based upon a Traffic Impact Study, the size of the proposed multi-function arena will be limited to a maximum seating capacity. (a 12,500 seat arena has been proposed and is being reviewed)

v)Any increase above the maximum GFA will require an amendment to the Zoning By-law. Council may require that appropriate transportation impact studies be undertaken by the proponent to ensure that additional development can be accommodated by the existing regional transportation system or feasible and desirable improvements to it.

vi)Gross floor area will be defined as the total area of all the floors in a building above or below grade, measured from the outside of the exterior wall but excluding car parking areas within the building.

3.4Height

i)The maximum height of all buildings and structures, including mechanical will not be exceed the height limitations based on Transport Canada criteria for the Downsview Airport.

ii)The maximum height will not exceed 238.8 metres ASL (approximately 42m (138 ft) at the corner of Sheppard Avenue and W.R.Allen Road as shown on Schedule "E".

3.5Parking

i)The number of vehicular and bus parking spaces will be provided based, in part, upon the a site-specific parking demand study completed to the satisfaction of the City.

3.6Yard Setbacks

i)The Destination: Technodome building will be required to locate at a minimum distance of 50 metres from the adjacent DCIEM property line.

ii)A minimum 2 metre (6^1/2 foot) setback will be required along Sheppard Avenue, W.R. Allen Road and the new internal road to provide an appropriate building setback, or to ensure an adequate area for landscaping and pedestrian movement.

3.7Net Site

Net site shall mean the gross site minus any lands that are intended to be conveyed to the City.

Appendix 2

Urban Design Guidelines

for Destination: Technodome

The Downsview Area Secondary Plan sets out a number of urban design objectives and principles for the Downsview Lands. Appended to this Plan is the Downsview Urban Design Guidelines that set out the specific design parameters for all development including the Destination: Technodome proposal. Together these documents provide a clear direction for both the landowner and applicant with respect to design, siting and key elements of the proposal including:

·the interface between the Destination: Technodome site and the adjacent park and open space lands, W.R. Allen Road and Sheppard Avenue;

·vistas;

·public art;

·pedestrian corridors ;

·parking area treatment;

·the nature and design of active plazas; and

·building massing and pedestrian scale.

The Destination: Technodome application has been amended to incorporate many of these design objectives. The Destination: Technodome proposal shall provide for the following urban design elements:

i)A direct, grade-separated and enclosed pedestrian bridge linking the Destination: Technodome building and the Downsview Subway Station that is designed as an extension of the public circulation system and which links the Subway Station to park and open space of the Downsview lands.

ii)An easement in favour of the City for a pedestrian corridor of not less than 20 metres in width generally aligned with the former Sheppard Avenue road allowance and extending from the Sheppard Avenue/W.R.Allen intersection to the new Transit Road/Chesswood Drive extension.

The pedestrian corridor will be designed so that it creates a strong presence as a major pedestrian entrance to the park. The provision and timing of the delivery for the pedestrian corridor will be secured through agreement(s) with the City. A clause will be included that provides for the relocation of a portion of the corridor, in the event the DCIEM facility is relocated in whole or in part.

iii)Placement of the building at a minimum distance of 50 metres from the adjacent DCIEM property that to reinforce the expression of this area as an entrance to the park and to provide an activity plaza(s) that link the activities of the Technodome to those of the Downsview lands. This area should incorporate the 20 metre pedestrian corridor, bus lane and lay-by, landscape buffer/screening on the south boundary of DCIEM.

The activity plaza(s) will contain active outdoor, programmed area(s) and passive recreational area(s) adjacent to the Destination: Technodome entrances/exits. The plazas will be flexible in design to accommodate large and small groups of people and should include such elements as trees, formal plantings, lighting, seating public art and other public features.

iv)A landmark structure(s), aligned on the axis with the former Sheppard Avenue road allowance from the east and Sheppard Avenue from the north, shall be provided to create a clear and distinct entrance to the park.

v)A grade-separated, vehicular bridge on W.R. Allen Road, south of Sheppard Avenue that is designed in such a manner to emphasize its significance as a primary vehicular entrance to the park.

vi)Park edge treatment that includes tree-lined edges and boulevards, lighting, landscaping and streetscape elements for the new road that will extend from the grade separated interchange at W.R.Allen Road to Chesswood Drive and along W.R. Allen Road and Sheppard Avenue.

vii)Improvements to the W.R. Allen Road and Sheppard Avenue intersection to create a more pedestrian friendly and safe environment.

viii)Public art, consistent with the public art policies contained within the Downsview Area Secondary Plan;

ix)Measures incorporated into the design and construction of parking facilities, including large surface parking lots to mitigate the visual impact of these facilities, to enhance the park-like character of the area and to ensure pedestrian safety.

Further refinement of these matters and the provision of design elements will be occur as the proposal proceeds through site plan approval. These and other matters such as public art will be secured through agreement(s) with the City.

Appendix 3

Community Comments

on Destination: Technodome

Destination: Technodome has been reviewed by Downsview Community Advisory Panel at many of its weekly meetings. The proposal has also been reviewed by the public at two community consultation meetings held in August, 1997 and two community meetings held in February, 1998. Most recently, the "Development Concept for Downsview" which was adopted by the North York Community Council on May 27, 1998, was presented to the public at three open house meetings held in June, 1998.

Comments on the redevelopment plans for Downsview including the Destination: Technodome proposal have been expressed by the Community Advisory Panel and the general public and include:

i)the effect of the proposed development upon adjacent arterial roads and the ability of these roads to accommodate increased traffic.

ii)traffic infiltration into residential neighbourhoods.

iii)the nature and timing of new roads and infrastructure to accommodate the proposed development of the lands.

iv)the number of vehicular and bus parking spaces and the control of parking to prevent spill-over into adjacent areas.

vi)the impact of development upon municipal services such as water supply and sanitary sewer.

While these matters are to be more fully addressed at the time of a recommendations report, it is appropriate to note the following:

·a major goal of the Downsview Area Secondary Plan is to ensure that all development is consistent with the capacity of the existing regional transportation system, including a number of feasible and desirable transportation improvements. The policies of the Plan require the landowner/applicant to provide new transportation infrastructure including roads, road improvements and new facilities to meet the needs of the proposed land uses, to ensure the road network can accommodate new uses and to safeguard adjacent neighbourhoods against traffic infiltration.

·The Transportation Master Plan has identified a need for new roads, changes to the existing road network and new infrastructure that must be provided to accommodate new development, including Destination: Technodome.

·The applicant for the Destination: Technodome proposal is required to provide a Traffic Impact Study to the satisfaction of the Works and Emergency Services Department . This study must assess the impact of the Destination: Technodome traffic upon the proposed road network and ensure that the development can be accommodated.

·The applicant is also required to submit a Parking Demand Study, to the satisfaction of the Works and Emergency Services Department, that assess the amount of parking during peak periods. The appropriate amount of vehicular and bus parking must be provided to the satisfaction of the City, based, in part, upon the parking demand study.

·The impact of the proposed Technodome proposal upon municipal sanitary sewer and water supply must be addressed to the satisfaction of the City's Works and Emergencies Services Department. A preliminary engineering report prepared by the applicant's engineering consultants is required to assess the Technodome's servicing requirements and to ensure the development can be accommodated within the City's existing infrastructure or by feasible and desirable improvements.

(Copies of Schedules A - Current Official Plan Designation, B - OPA 464: Proposed Land Designations, C - Existing Zoning Map, D - Site Plan, E - Height Restrictions, F - Elevations, G1 G2 - Sections and H - Landscape Plan, are on file in the office of the City Clerk.)