July 6, 1998

To:Scarborough Community Council

 From:Lorne Ross, MCIP, RPP.

Commissioner of Planning and Buildings

 Subject:Official Plan Amendment Application SP98003

Knob Hill Farms Limited

Part of Blocks A and B, Registered Plan M-172 and

Part of Lot 22, Concession C

Eglinton Community

Scarborough City Centre

Purpose:

 This report presents recommendations to amend the Eglinton Community Secondary Plan, the Employment Districts Zoning By-law (Knob Hill Employment District) and the Eglinton Community Zoning By-law, for the vacant lands occupying the south-east corner of Eglinton Avenue and McCowan Road, as shown on the adjacent map. The Official Plan amendment proposes to maintain the existing Commercial Mixed Use (CMU) designation, but through the addition of a Numbered Policy would permit retail commercial uses as a primary use. The By-law amendment proposes to delete the property from the Knob Hill Employment District and incorporate the lands into the Eglinton Community Zoning By-law and zone the lands for "Community Commercial" uses to permit a home improvement centre (the Home Depot) with a garden centre and an ancillary restaurant. Although the Public Notice described the applicant's proposed rezoning as "Highway Commercial", I am of the opinion upon further consideration that the "Community Commercial (CC)" zone would more appropriately implement the Official Plan designation.

Recommendations:

 It is recommended that Council:

(A)Official Plan:

 amend the Eglinton Community Secondary Plan, with respect to the property located at the south-east corner of Eglinton Avenue and McCowan Road, being Part of Blocks A and B, Registered Plan M-172 and Part of Lot 22, Concession C, by adding the following Numbered Policy:

 "South-East Corner of Eglinton Avenue and McCowan Road

 Within the Commercial Mixed Use designation as it applies to this land, retail commercial uses are permitted as a primary use.";

 (B)Zoning By-law:

 (1)amend the Employment Districts Zoning By-law Number 24982 (Knob Hill Employment District), as amended, by deleting the subject land located at the south-east corner of Eglinton Avenue and McCowan Road, being Part of Blocks A and B, Registered Plan M-172 and Part of Lot 22, Concession C, and incorporating it into the Eglinton Community Zoning By-law No. 10048, as amended.

 (2)rezone the land by replacing the existing zoning with the "Community Commercial (CC)" zone and limiting the permitted uses as follows:

 (a)Permitted uses:

 -retail stores, personal service shops, restaurants;

-banks, business and professional offices;

-open storage and display of goods ancillary to a retail store;

 (b)maximum gross floor area of all buildings shall not exceed 0.30 times the lot area;

 (c)minimum street yard setback 3 metres (10 feet). Patios, roof overhangs, canopies and supporting columns can be built to the street line;

 (d)minimum 5.0 parking spaces per 100 square metres (1,076 square feet) of gross floor area for personal service shops and retail stores, including ancillary restaurants;

 (e)Non-Accessory Signs, except Marketplace Signs, shall not be permitted;

 (C)resolve that no further notice is required regarding the change in the zone category from "Highway Commercial" to "Community Commercial (CC)" Zone;

(D)Miscellaneous:

 authorize such unsubstantive technical, stylistic or format changes to the Official Plan and Zoning By-law amendments as may be required to properly carry out the intent of this resolution; and

 (E)prior to the enactment of the Zoning By-law amendment, a Site Plan Control approval be granted by the Commissioner of Planning and Buildings. The agreement will be registered on title following the Zoning By-law coming into effect.

 Background:

 Site Context and Planning Controls

 The site forms part of lands along Eglinton Avenue, between Midland Avenue and Bellamy Road, which were the subject of an extensive land use and urban design review, "New Opportunities: A Study of Eglinton Avenue", in the early 1980's. The study was prompted by a widely recognized need to rejuvenate Eglinton Avenue, one of the main arterial roads characterized by monotonous parking lots and garish looking, outdated strip commercial plazas. On the basis of the study's recommendations, Council adopted a number of Official Plan policies aimed at promoting a wide range of uses which would be conducive to greater pedestrian activity at the street, support public transit and encourage redevelopment of the lands within the study area.

 Since the Study's adoption, a number of projects have been approved along Eglinton Avenue. These include: a townhouse complex on the north side of Eglinton Avenue, between Brimley and McCowan Roads, a residential/commercial redevelopment on the north side of Eglinton Avenue, east of Danforth Road, and two residential/office/commercial developments on the south side of Eglinton Avenue at McCowan Road, and Bellamy Road North respectively. To date none of these projects have been constructed.

 Lands on the north side of Eglinton Avenue, across from the site, and the properties immediately to the east, accommodate commercial/industrial businesses. Two high rise apartment buildings occupy the west side of McCowan Road, and a nine storey apartment building with offices and commercial at the lower levels, is proposed at the south-west corner of Eglinton Avenue and McCowan Road. To the south, the site is bounded by the C.N. railway.

 The Official Plan designates the lands Commercial Mixed Use permitting High Density Residential uses, Office Uses, Hotels, Service Stations and Community Facilities. The Eglinton Community Secondary Plan incorporates a number of policies to guide development along Eglinton Avenue, to create a vibrant attractive streetscape promoting pedestrian-oriented activity and high usage of transit facilities. The applicable policies do not permit commercial uses as a primary use.

 The site is zoned Industrial Zone (M), Industrial Commercial Zone (MC) and Industrial District Commercial Zone (MDC) permitting industrial, offices, educational and training facility uses, recreational uses, places of worship, day nurseries, vehicle service stations, mechanical or automatic car washes, restaurants, barber shops, financial institutions, building supply and lumber yards, electric light fixture sales, furniture and home appliance sales and services, floor covering and drapery sales, paint and wallpaper sales, and vehicle repair garages with vehicle sales operations.

A community information meeting was hosted by staff on March 11, 1998. The area of notification included over 2,000 assessed persons. Approximately 80 residents attended the meeting. Following presentations by staff and the project consultants, residents expressed their concerns and comments on the existing traffic problems in the area and the anticipated additional traffic that would be generated by the new store. In summary, the residents feel that the proposed signalized intersection at the site entrance and Torrance Road will further exacerbate traffic infiltration into the neighbourhood north of Eglinton Avenue.

 On April 1, 1998, Scarborough Community Council endorsed a Preliminary Evaluation Report and directed the Planning and Buildings Department to target a Public Meeting on these applications for the third quarter of 1998, subject to the applicant submitting a Site Plan Control Application and an updated transportation study. Council also requested that the submitted site/elevation plans address the transportation concerns pertaining to vehicular site access and on-site circulation, as well as provide for windows and access into the building along the Eglinton Avenue frontage which could be achieved by incorporating such uses as a restaurant along the Eglinton Avenue frontage resulting in a pedestrian-oriented, animated streetscape. The purpose of updating the transportation report was to address the concerns expressed at the community meeting regarding the impact the development will have on traffic movements within the community.

 Comments:

(1)Eglinton Avenue is one of the major east-west thoroughfares in the City, spanning the eastern boundary of Scarborough to the Toronto International Airport. Given its function as a major access and one of the "main streets" in Scarborough, its appearance is critical in shaping an image of the surrounding community. The predominantly commercial development along Eglinton Avenue dates back to the 1950's and the early 1960's and is ready for rejuvenation. In approving the "New Opportunities" Study and the resulting Official Plan policies, Scarborough Council recognized a need to improve the appearance of the properties fronting onto Eglinton Avenue. However, since approval of the "New Opportunities" Study, the concept of "big box" warehouses accessible to the general public, emerged in Canada in the early 1990's. The Study as such did not consider this new commercial approach which continues to be a trend in retail and creates substantial employment opportunities.

 Notwithstanding some past interest, the site has remained vacant. The Commercial Mixed Use designation provides for, and supports activities promoting intensive use of the public space, design improvements to buildings and the overall streetscape, to attract local shoppers and passers-by. The proposed development has the potential of becoming a catalyst for other development initiatives along Eglinton Avenue, including the construction of the approved projects. Thus, there are a number of applicable policies under the CMU designation that the proposed use could fulfill with the implementation of an appropriate site plan.

 In considering the zoning category which implements the Official Plan policies, staff have concluded that the "Community Commercial (CC)" zone more appropriately reflects the nature of the proposed development, as this zone provides for a broad range of retail and service uses. These uses enhance the pedestrian-oriented activity along the street which is consistent with the CMU designation.

(2)In support of the proposed amendments, the applicant has submitted a Site Plan Control application which is the result of extensive negotiations between city staff and the applicant. The new building is accommodated on the westerly portion of the site, with a garden centre and servicing facilities located behind. Parking for 546 cars occupies the balance of the site.

In an effort to address Council's direction, the applicant has revised the typical floor layout of the Home Depot store by placing the store's office, a small traditional retail area and a restaurant along the Eglinton Avenue frontage. This approach provides for the provision of large windows and doors permitting direct pedestrian access to the store from the street. Staff are continuing discussions with the applicant with respect to the site plan details to achieve a development which will contribute to the rejuvenation of the Eglinton Avenue streetscape and attract more development to the area, while creating no negative impact on the adjacent businesses or the residential community. Discussions are ongoing regarding the landscape treatment of the corner of Eglinton Avenue and McCowan Road. This detail will be resolved prior to final site plan control approval. To ensure that the site plan is implemented as agreed upon with the applicant, staff propose that the owner sign a Site Plan Control agreement prior to Council passing the Zoning By-law bill. Upon the owner entering into the agreement with the City, Council would then enact the Zoning By-law. This process will ensure that the City has control of the registration of the agreement. The agreement would be registered on title only after the zoning by-law amendment is in effect.

 (3)The applications were circulated to various agencies, none which expressed opposition to the proposed amendments. Statutory Public Notice has been provided to all assessed persons within 120 metres (400 feet) of the subject land, as well as all individuals who requested to be notified of further meetings to consider the applications.

 Canadian National Railway (CN) has indicated that any changes to the existing drainage pattern must be agreed upon with CN. CN has requested the owner to install and maintain a 1.83 metre (6 feet) high fence along the common boundary. In view of the proximity to the railway, the CN recommends that the new building be set back 30 metres (98 feet) from the property line and that a 2.5 metre (8 feet) berm be provided along the boundary. In addition, CN suggests that the owner retain a noise consultant to undertake an analysis of noise and vibration and implement appropriate measures to mitigate any adverse effects that may be identified.

 While the south-east corner of the outdoor garden centre is located 42 metres (138 feet) from the south property line, the building is set back at least 65 metres (231 feet) from the railway right-of-way. Given the commercial nature of the project, the proposed distance in conjunction with a 2 metre (6.6 feet) earth berm and planting should be sufficient to mitigate the impact of the adjacent railway. The proposed treatment is similar to measures used on other sites abutting the railway line. The site plan control application has recently been circulated and we are awaiting comments from the Canadian National Railway. A higher berm could be accommodated on the site if requested, even though the building is set back a greater distance than required by CN.

The Recreation, Parks and Culture Department has reviewed the Arborist Report and indicated that the existing trees are too small to meet the criteria under the Tree Protection and Conservation By-law. Notwithstanding, the proposed landscape plan incorporates a substantial number of the existing pine trees, especially along the McCowan Road frontage.

The Works and Environment Department has no concerns with respect to the proposed amendments. A stormwater management study will be required prior to final site plan control approval.

 The Toronto Transit Commission (TTC) has requested that the existing bus stop and shelter be relocated to the west of the proposed driveway on Eglinton Avenue.

 (4)To successfully accommodate the proposed use on this site and integrate it within the surrounding community, a number of traffic control measures and road improvements will be implemented. The most important is the provision of lights at the main site entrance opposite Torrance Road. This intersection is an appropriate distance from the existing signalized intersection at Eglinton Avenue and McCowan Road, and Eglinton Avenue and Bellamy Road. In conjunction with the new lights, minor widenings along Eglinton Avenue will be done to incorporate centre median islands on the east-west approaches to the site entrance. This change will necessitate the revision of the traffic pattern affecting the property at the north-east corner of Eglinton Avenue and Torrance Road by limiting the existing driveway off Eglinton Avenue to right turns only. The Home Depot Canada is finalizing an agreement with the affected owner. The proposed improvements are necessary to serve the project, but will also be beneficial to the existing and approved development in the area.

 As a result of concerns expressed by staff and the residents, the vehicular access of Landmark Boulevard has been re-designed to allow passenger car traffic only. In the overall scheme, this entrance will serve as a secondary access to the site and used mostly by customers to the south. Also, moving the garden centre from the Eglinton Avenue frontage to the south of the building, eliminated the need for a second access of Landmark Boulevard to accommodate deliveries of landscape products to the garden area, that the applicant has previously proposed. All deliveries will be accommodated via the Eglinton Avenue access.

 The traffic study and additional supporting material requested by the Metro Transportation staff is under review. Informal discussions with staff indicate that the Metro Transportation office finds the proposed traffic control measures to be satisfactory. It is anticipated that formal comments will be available by mid July, 1998. Upon receipt of these comments, a supplementary report may be issued if required. All transportation improvements necessary to accommodate the proposed development will be made conditions of approval of the site plan control application.

Concern was expressed about the existing and future traffic infiltration into the neighbourhood north of Eglinton Avenue. In response to a resident's request in July 1996, the Works and Environment Department staff conducted an investigation of traffic infiltration on July 23, 1996. The study looked at all traffic using Torrance Road, Trudelle and Grace Streets to travel between Bellamy Road and Eglinton Avenue. During the a.m. peak hour 10 cars of a total 24 entering cars were "infiltrators". The popular infiltration route was southbound Bellamy to Grace to Cedar Brae and back to Bellamy Road North to get to Eglinton Avenue, with only one car using Torrance Road. During the p.m. peak hour six cars of a total 27 cars entering the neighbourhood were identified as "infiltrators". Two cars used Torrance Road and three used Bellamy Road to Grace Street to get to Bellamy Road North. The 24 hour volume count on Grace Street shows that there is only 500 cars per day on the road. The study concluded that because of the low volume of by-pass traffic and the low total volume on Grace Street, additional traffic measures to restrict movement of traffic into the community was not warranted. The City transportation staff felt at that time that adding restrictions would have a greater impact on the travel patterns of residents than on the by-passers.

 The current traffic study concludes that the addition of the Home Depot store will not negatively impact on this neighbourhood as only a relatively small portion of the market (about five per cent) will use Bellamy Road North. Notwithstanding, the study suggests that with the installation of the traffic signals at Torrance Road, it would be easy to implement a north-south through traffic prohibition. Staff have reviewed this proposal and is of the opinion that it may be an unnecessary impediment to the local residents. As such, staff recommend that the situation be reviewed when the store is in operation and then, if required, implement this measure.

 The applicant has also reviewed the proposed development with representatives of the ownership immediately to the east. The Home Depot Canada has agreed to share the Eglinton Avenue signalized entrance, provided the adjacent owner participates in sharing of the cost of the signal lights, if and when the property is redeveloped.

 The applicant has proposed 546 parking spaces, providing for a parking ratio of 5.1 cars per 100 square metres of gross floor area. Based on the review of other similar projects incorporating "big box" retailing, staff support the parking standard of 5 spaces per 100 square metres of gross floor area for all permitted uses.

 (5)The development will also contribute to the local economy by generating growth in employment and assessment. The applicant has indicated that the proposed store would provide approximately 120 full time and 92 part time positions.

 Conclusions:

 The proposed development provides for a good use of the vacant site bounded by two arterial roads and a railway line. It will address the Official Plan policies aimed at revitalizing Eglinton Avenue and supporting pedestrian use of public streets.

 Contact Name:

 Anna Czajkowski, Senior Planner

Community Planning Division

Phone: (416) 396-7022

Fax: (416) 396-4265

E-mail: czajkows@city.scarborough.on.ca

  Lorne Ross, MCIP, RPP.

Commissioner of Planning and Buildings