July 7, 1998

To:North York Community Council

From:Bryan Tuckey, Acting Commissioner of Planning

Subject:Downsview Area Secondary Plan, Official Plan Amendment No. 464

Purpose:

As directed by the North York Community Council at its meeting held on May 27, 1998, and confirmed by Toronto City Council on June 3, 1998, this report brings forward the draft Downsview Area Secondary Plan for adoption by North York Community Council as part of a package of documents setting out the planning framework for future development of the Downsview area. This report also responds to North York Community Council's motions at its meeting on May 27, 1998.

Recommendations:

It is recommended that:

(1)the attached by-law to adopt Official Plan Amendment No. 464, the Downsview Area Secondary Plan, be enacted;

(2)the Transportation Master Plan be adopted which will satisfy Phases 1 and 2 of the Municipal Class Environmental Assessment and be used as a basis for future environmental assessment studies that will be required for specific transportation projects;

(3)the Downsview Urban Design Study be adopted as urban design guidelines for development in the Secondary Plan area;

(4)the appropriate City Officials be authorized and directed to take the necessary action to give effect thereto.

Background:

On May 27, 1998, North York Community Council endorsed public circulation of the Development Concept for the Downsview Area as the basis for preparing a draft Secondary Plan and directed:

(i)that the draft Secondary Plan be brought forward for a statutory meeting after additional public consultation;

(ii)that a Transportation Master Plan be prepared, and

(iii)that the draft Downsview Urban Design Study be refined based on public and stakeholder feedback and be incorporated as part of the draft Secondary Plan.

North York Community Council also directed that staff examine a number of matters related to the Downsview Area Secondary Plan, including transportation and parking, servicing, public art, and the park and open space area. The North York Community Council's recommendations were adopted by City Council on June 3, 1998. This report tables the draft Secondary Plan, the Transportation Master Plan, the revised Urban Design Study and responds to the matters raised. Reports on applications in the Secondary Plan area will be brought forward separately at the appropriate time.

Discussion:

(1)Public Consultation on the Development Concept:

The fundamental objectives and principles of the Development Concept were confirmed as a result of public input at three open houses attended by approximately 350 people at Wm. Lyon Mackenzie Collegiate Institute on June 1, at Downsview Secondary School on June 9, and at C. W. Jefferys Secondary School on June 11, as well as at additional public information meetings attended by City staff.

Many written submissions and speakers at the open houses commented favourably on the Development Concept and the emerging vision for Downsview, including support for:

• provision of bicycle and pedestrian trails as part of the overall transportation plan for the Secondary Plan area;
• creation of a major public park which should be green, natural and with limited roadways or parking areas;
• inclusion of employment uses and the creation of job opportunities.

Questions were raised about specific aspects of the Development Concept, particularly traffic and transportation matters such as:

• the effect of traffic from specific developments on adjacent arterial roads;
• traffic infiltration and spillover parking in adjacent residential areas;
• the nature and timing of proposed road improvements;
• whether proposed road improvements would be sufficient to accommodate the transportation demands of specific proposed developments and whether additional improvements should be provided;
• measures to ensure that required infrastructure is in place prior to development opening to the public.

Other comments received at the public open houses included observations that:

• financial arrangements to build infrastructure required for development should not create any future public liability for their completion;
• large parking areas should be avoided and measures taken to ensure that parking lots have an attractive appearance;
• low water pressure in surrounding residential areas should be addressed.

Public feedback on the Development Concept was generally supportive, asking for additional detailed information about the Development Concept, proposed developments, proposed transportation infrastructure, and the secondary plan process. No position emerged that contradicted the fundamental principles or objectives of the Development Concept nor its planning policies. Accordingly, it is appropriate to proceed with the draft Secondary Plan based on the principles of the Development Concept.

(2)Draft Downsview Area Secondary Plan:

The draft Downsview Area Secondary Plan, draft OPA No. 464, is based on the Development Concept and Council's major goals for the Secondary Plan area and sets out a comprehensive development framework which is the foundation of this major City-building exercise. This development framework provides direction for the overall structure, form and physical development of the Secondary Plan area, including how a park-like character of the public realm will be created and extended throughout the area. The draft Secondary Plan specifically provides for a major park on the east side of Keele Street, new low-density residential neighbourhoods, a full range of employment uses, a cultural focus celebrating the area's military and aviation history, provision for a continued military presence, and attractive and generously proportioned park, trail and pedestrian linkages.

The draft Secondary Plan creates six new land use districts that set out the role, function, permitted density, and specific development requirements for individual parts of the Secondary Plan area. The new land use districts ensure that specific development and land use objectives for the Downsview area will be achieved. These districts include:

• Park and Open Space, which is to have a minimum area of 88 ha. (218 acres), and include a major public park consistent with the Federal government's objective for creating a unique urban recreational greenspace;
• Research-Technology Park, is intended as a business park with a high-technology focus accommodating office, research, technology and related uses in a park-like setting;
• Cultural Campus, in the centre of the Secondary Plan area, where a fine-grained, urban, pedestrian-oriented area with a festive atmosphere celebrating the military and cultural history of the area is to emerge, and
• Sport, Entertainment and Recreation, located opposite the Downsview subway station and adjacent to the Allen Road, accommodating high intensity sport, entertainment, recreation and related uses near high capacity transportation infrastructure.

Other districts accommodate new low-density residential neighbourhoods, commercial retail uses, mixed commercial residential development on City-owned lands at the Allen/Sheppard intersection and support the continued operations of Bombardier Aerospace (de Havilland) and the Toronto Transit Commission's Wilson subway station and related yards and commuter parking lots.

The draft Secondary Plan also establishes heritage, public art, and transportation policies, including required transportation facilities. Finally, the draft Secondary Plan contains a strong and innovative implementation framework which provides for design review of low density housing, requires development plans that will ensure the orderly and co-ordinated development of areas expected to develop incrementally, monitors the impact of development on transportation and servicing infrastructure to ensure that the capacity of infrastructure keeps pace with development and to ensure that new infrastructure required for development will be available when needed.

The Transportation Master Plan attached to this report satisfies Phases 1 and 2 of the Class Environmental Assessment for Municipal Road Projects and forms the basis for future environmental assessment studies that will be required for specific transportation works. The Plan identifies a number of new transportation facilities, as well as improvements to the existing road network, in order to support the levels and types of development contemplated by the draft Secondary Plan.

The Downsview Urban Design Study is attached, but does not form part of the draft Secondary Plan. This study sets out urban design guidelines, illustrative examples and design options showing how fundamental design principles will shape development, including criteria that should be considered for the design of the park.

Together, these three documents set out the City's development vision, detailed analysis and environmental review for required transportation infrastructure, and the urban design framework to ensure that development will achieve the City's objectives of a major public park and a balanced mix of land uses which integrate these lands into the urban fabric.

(3)Public Submissions on the Draft Secondary Plan:

A number of public submissions and agency comments have been received in response to circulation of the draft Secondary Plan and publication of the notice of the Statutory Public Meeting, and additional comments are expected. In particular, staff is meeting with the Downsview Community Advisory Panel to discuss their comments on the draft Secondary Plan. While CAP continues to express support for the fundamental objectives, principles and structure of the draft Secondary Plan, specific issues have been raised concerning certain land use districts and specific policy requirements which require further discussion and consideration. These further public and agency comments, and recommended refinements to the draft Secondary Plan, will be addressed in a supplementary report to be tabled at the July 22nd meeting of the North York Community Council.

(4)Other Matters Raised by North York Community Council:

North York Community Council's decision of May 27, 1998, identified a number of traffic and parking, land use and urban design, public art and open space and servicing matters to be addressed in preparing the draft Secondary Plan. Most of these matters had already been identified by staff and have either been completed, and/or included in the draft Secondary Plan. Those outstanding matters will be addressed through the review and processing of specific development applications. The related extract from the minutes of the North York Community Council, as adopted by Toronto City Council, is attached for reference.

Traffic, Transportation and Parking:

(a)Comprehensive review of all parking on the Downsview lands and inclusion of an overall parking plan in the draft Secondary Plan

Parking policies in the draft Secondary Plan set the stage for implementation of an overall parking plan as development occurs. Policies encourage use of public transit and other modes of transportation which will reduce vehicle use and the number of parking spaces required. Increasing the use of public transit and reducing the need for parking will be achieved through the co-ordinated management of parking supply and demand, shared parking, reduced parking standards in proximity to transit facilities, the application of minimum and maximum parking standards, and strategy for the implementation of travel demand measures to be applied through the review of specific development applications.

(b)Feasibility of accepting responsibility for building and managing all parking for both public and private recreational uses on the Downsview lands and applying parking revenues to public purposes

The Toronto Parking Authority has begun a review of this matter, has held preliminary discussions with the Planning Division, and expects to report to North York Community Council in September.

(c)Proposed Transit Road extension and specific matters related to TTC operations

The recommended road network shown in the Downsview Lands Master Plan Transportation Study, Technical Status Report No. 2, which was before North York Community Council on May 27, was developed in consultation with planning staff at the Toronto Transit Commission. Commission staff will further examine details of this facility relative to existing TTC operations, the Wilson Yards present and future, and the Transit Road extension, and will provide comments as part of the Transportation Master Plan process.

(d)Local traffic management study to develop a plan to prevent traffic infiltration into residential neighbourhoods east of the W. R. Allen Road

A local traffic management study to identify means of preventing traffic infiltration into the residential neighbourhoods east of the W. R. Allen Road has been started. Data collection in the form of automatic traffic counts, manual turning movement counts, and review of accident data will be initiated in the near future. This data will establish existing conditions which can be compared with traffic volumes associated with future development. As part of the ongoing transportation monitoring which will be undertaken by the City, there will be a requirement that development applications contribute additional funds to develop traffic management plans.

(e)Review of the Official Plan designations of Wilson Heights Boulevard and Faywood Boulevard

The Official Plan designations of Faywood Boulevard and Wilson Heights Boulevards were reviewed in terms of the former City of North York road classification. The draft Secondary Plan redesignates Faywood Boulevard from a Minor Arterial to a Collector, and redesignates Wilson Heights Boulevard from a Collector to a Minor Arterial. The draft Secondary Plan also redesignates Wilmington Avenue, which is the northerly extension of Faywood Boulevard north from Sheppard Avenue to Finch Avenue, from a Minor Arterial to a Collector. Minor amendments to the zoning by-law will also be required to implement these changes.

(f)Maximizing the capacity of the road network serving the Technodome by installation of an area-wide SCOOT system provided as a requirement of development approval

The Transportation Master Plan has identified the SCOOT traffic adaptive system as an improvement which could be implemented by conditions of approval for development in the Secondary Plan area, subject to other traffic-related operations, and could be part of a traffic management strategy for the surrounding road network.

(g)Study of how de Havilland traffic will be redirected to the edges of the community, including a revised parking lot structure.

A study of de Havilland's traffic operations was undertaken as part of the transportation review for the draft Secondary Plan and will be appended to the Transportation Master Plan. The draft Secondary Plan encourages the provision of a new parking facility north of de Havilland's existing manufacturing plant with a driveway connecting north to Carl Hall Road.

(h)Explore the possibility of a three million square foot research-technology park which operates on a 24 hour cycle, 7 days a week

The Transportation Master Plan will discuss the impacts of non-traditional office park users, such as 24-hour cycle, 7 day a week operations. This evaluation will explore methods and incentives to reduce auto usage during the morning and afternoon peak hours and to increase transit modal split and vehicle occupancy, as well as to promote the implementation of flexible work hours, shift work and/or 24-hour operations and work-at-home positions. This evaluation will explore transportation management options to help achieve the maximum of 278,700 sm. (3,000,000 sq. ft.) of research-technology uses permitted in the Research-Technology Park by the draft Secondary Plan.

Land Use and Urban Design:

(a)Development of commercial retail uses on Wilson Avenue and enhancement of the Wilson Avenue streetscape

The draft Secondary Plan requires that development on the Commercial Retail lands on the south side of Wilson Avenue contribute to an appropriate streetscape by siting commercial uses along street frontages and encouraging the provision of small retail stores with direct pedestrian access to Wilson Avenue.

The draft Secondary Plan designates the south Wilson subway station commuter parking lot Commercial Retail which will facilitate inclusion of these lands in the development site of application UDOZ-97-41 (Price-Costco Canada Inc.).

Relocating commuter parking from the TTC's Wilson subway station to the Downsview subway station, and gaining contributions from project developers for improvement of the Wilson Avenue streetscape, will be addressed through the processing of application UDOZ-97-41.

(b)Encouraging contributions from major commercial recreational developers toward the enhancement of the Wilson Avenue streetscape

Discussions on this matter are underway with the local councillor and the developer. This matter will be addressed through the processing of the specific development application.

(c)Mt. Sinai Cemetery - Pedestrian Access

Staff met with representatives of Mt. Sinai Cemetery in February, 1998. Cemetery representatives expressed interest in providing access for pedestrians and bicycles through the cemetery to Wilson Avenue. Staff will be meeting with the area councillor and representatives of Mt. Sinai to further discuss the proposal as outlined in the draft Secondary Plan.

(d)Discussions between the Member of Parliament for the area, City Councillors and a representative from the Mayor's Office on the release of restrictive covenants affecting City-owned lands at the Allen/Sheppard intersection

Two restrictive covenants in favour of the Federal government affect the City's Allen/Sheppard lands. One covenant restricts the use of these lands to industrial purposes only, while the other limits the maximum height of buildings and structures in relation to de Havilland's non-operating east-west runway. These covenants must be addressed prior to the City proceeding with the proposed mixed use development of its lands as shown in the draft Secondary Plan.

City and Federal staff have begun discussions on these matters, which are co-ordinated by the Commissioner of Corporate Services. In addition to the covenants, the opportunity for the City to deal with other matters, including ownership of the lands upon which the Allen Road is built and use of the City's land for proposed transportation infrastructure improvements, must be resolved.

Public Art, Park and Open Space:

(a)Incorporating public art into major projects and incorporating public art requirements into planning reports on all major projects

The former City of Toronto administers a public art program that secures a 1% contribution for public art through the processing of major development applications, such as the Skydome, BCE Place and Metro Hall. Staff of both the former City of Toronto Urban Development Services Department and the former Metro Cultural Affairs Division have assisted in developing the public art policy included in the draft Secondary Plan, which requires that public art contributions be secured at the time major development applications are processed. The draft Secondary Plan also encourages the Downsview Trust to develop a District Public Art Plan for all lands under its jurisdiction to ensure that public art is provided in a co-ordinated manner.

(b)Providing a major park facility on the City-owned lands on the southeast corner of the W.R. Allen Road and Sheppard Avenue

The draft Secondary Plan requires that a neighbourhood park having a minimum area of 1.6 ha. (four acres) be provided on the City lands. A detailed assessment of the future park will be undertaken as part of the Allen/Sheppard Urban Design study included in the Planning Division's 1998 Work Program.

(c)Feasibility of an "Arts Park" for Downsview

The feasibility of developing an "Arts Park" project for the Federal lands at Downsview will be assessed as part of the park design process, which will be jointly managed by the City and Canada Lands, as a design and programming option within the park rather than as a policy in the draft Secondary Plan. This process will determine the program requirements and overall design for the Park and assess opportunities to enhance and extend other public art components on the Downsview lands. Development of a District Public Art Plan by the Downsview Trust as encouraged by the draft Secondary Plan will help to ensure that public art, such as an "Arts Park", is provided in a co-ordinated manner. Staff will be meeting with the Downsview Community Arts Project and will report back further on these matters and on securing the participation of developers in the studio and Arts Park project.

(d)Limits on the area of roads and parking lots in the Downsview Park

The draft Secondary Plan permits up to 5% of the lands designated Park and Open Space to be used for buildings and structures to ensure that a major open space and parkland area will be established and to control the number of large scale recreational facilities, but does not set out a maximum for roadways and parking areas.

Data collected on other major parks in the City indicates that road and parking areas vary from 5.7% to 18.6%. The wide range in the area used for roadways and parking reflects the unique balance in each park between the conflicting demands of maintaining open spaces, providing recreational and service facilities, and accommodating visitor facilities.

It is noted that the Downsview Park is intended to be a "unique urban recreational greenspace" which meets a balance of both local and regional park and recreational needs that have not been determined. Retaining large areas of open space is a major objective for the park. However, adequate facilities for all visitors, infrastructure for bus routes, roadways, parking areas, cycling and hiking trails must also be provided.

The amount and type of facilities needed in the Downsview Park will depend on a number of factors and will be determined through the park design process. This joint City-Canada Lands process will allow the City to determine which facilities should be provided, the public demand which may be expected, and the resultant need for roadways and parking areas. As part of the City's review of Canada Land's proposals, a number of measures have been identified which could limit the impact of roads and parking areas. These measures include pick-up, drop-off and small parking areas that could be located at entrances and along boundary roads and which could be well landscaped and designed to integrate with the park landscape. Once the park design process is complete, limits on the amount of land used for roads and parking areas may be determined.

Servicing:

(a)Comprehensive plan to deal with low water pressure in Downsview as part of the redevelopment of the Downsview Base lands

A water needs study to determine existing conditions and the impact of various development scenarios on water flows and pressures in the general area surrounding the Base lands has been started. Water flow and pressure tests to determine existing conditions have also been started, and should be completed within the next two months. It is a principle of development for the Secondary Plan area that no negative impact will be created and that, where feasible, new infrastructure should improve existing conditions.

(b)Plan to manage stormwater on parking lots

On-site stormwater management controls have been required for the Heathmount and Price-Costco developments to deal with the stormwater quantity and quality issues associated with those developments in general and with their large parking lots in particular. An overall stormwater management study, co-ordinated with the Toronto Region Conservation Authority and Canada Lands Co. Ltd. to deal with the stormwater runoff quantity and quality issues for the remainder of the Downsview base lands, has also been started.

Conclusion:

The planning framework for the Downsview area is contained in the draft Secondary Plan, the Transportation Master Plan, and Downsview Urban Design Study attached to this report. The draft Secondary Plan sets out a land use policy framework that will achieve a major public open space and create a mix of residential, cultural, employment and recreational uses that will knit these lands into the fabric of the Downsview community. The Transportation Master Plan provides the fundamental basis for the environmental assessment of transportation infrastructure required to support the draft Secondary Plan. The Downsview Urban Design Study elaborates and refines the draft Secondary Plan by providing illustrative examples and design options to ensure that development occurs within and extends a park-like character throughout the Secondary Plan area. Consultation with the community and stakeholders is continuing with respect to the draft Official Plan Amendment and the results of these discussions will be reported on in a supplementary report to the July 22nd meeting of the North York Community Council.

Contact Name:

Tom Keefe, Manager (Downsview) tel.: 395-7170

(Copies of all Schedules and Appendices attached hereto, are on file in the office of the City Clerk.)