A Preliminary Review of the 12 Surplus Properties,
Directed by Council to be Held in Abeyance for
120 Days Pending a Review to Determine the
Feasibility of Development for Affordable Housing
The Corporate Services Committee recommends the adoption of the following joint
report (August 28, 1998) from the Commissioner of Corporate Services and the
Commissioner of Community and Neighbourhood Services:
Purpose:
To respond to a Council directive of July 29, 30 and 31, 1998, to delay for a period of 120
days, the marketing of the 12 surplus properties, identified in a report from Councillor
Layton (July 30, 1998), and further that staff examine the "Ellesmere Road Site" separately.
(Corporate Services Committee Report No.11, Clause No.2).
Funding Sources, Financial Implications and Impact Statement:
At this time no funding is required and there are no funding implications. In the event that
any of the 12 sites referenced in Councillor Layton's report are used for a pilot housing
project the contributory value of the property will be estimated and reported at that time.
Recommendations:
It is recommended that:
(1)the Commissioner of Corporate Services be directed to proceed with sale of the
following surplus sites, as identified in this report: Wilson Heights Blvd (6 sites) and
Ellesmere Road (1 site between Kennedy and Midland).
(2)marketing continue to be delayed for the following surplus sites, pending a staff report,
by the end of 1998, through the Council Strategy Committee for People Without Homes, on
their potential for affordable housing purposes; Grand Avenue (2 sites), Legion Road and
Lawrence Avenue/Allen Road.
Council Reference/Background/History:
At the meeting held on July 29, 30 and 31, 1998 Council considered a Corporate Services
Committee Report describing various programs underway to expedite the disposal of land
and reduction of leases (Clause No.2 of Report No.11 of The Corporate Services
Committee). Councillor Layton submitted a companion report (July 30, 1998) which was
considered in conjunction with the Corporate Services Committee report. The objective of
the Layton report was to delay the marketing of 12 specific surplus properties to enable the
Council Strategy Committee for People Without Homes to develop a business plan for the
utilization of the sites as potential affordable housing projects. Council amended and
approved both reports and directed that the "Ellesmere Road Site" be examined separately.
While we have been asked to report to the Corporate Services Committee for September 14th
regarding the Ellesmere Road site, we would also like to comment at this time on the other
sites withheld from sale, at the Council meeting of July 29, 30 and 31. A staff workgroup
from the Shelter, Housing and Support Division of Community and Neighborhood Services,
from Urban Planning and Development Services, and from Corporate Services, Real Estate
Division has met to review these sites with regard to their potential for affordable housing
development. In addition, this workgroup will be considering other City-owned sites, not yet
scheduled for disposition. The objective of these reviews is to identify those sites that are
most suitable for affordable ownership, rental or transitional housing demonstration
projects. As described in the Affordable Housing Strategy report adopted by Council on July
29-31, the challenge is to find sites (or buildings) where it may be feasible for non-profit or
private groups to create affordable housing, without ongoing government subsidy.
Based on this assessment, we would recommend that only four of the 12 sites be retained for
further investigation as potential for affordable housing (Grand Avenue - two sites, Legion
Road, and Lawrence Avenue/Allen Road), while the other eight be released for sale because
they have limited feasibility. This report reviews the 12 sites and, for the four with the
greatest potential, describes the steps required to test their feasibility for affordable housing
development through further investigation and/or calls for proposals. Part of this
investigation will include discussions with local planning staff and the local councillors. We
would propose that the four sites be held from sale until staff report back later this year on
their feasibility for affordable housing. In terms of other sites that are not yet declared
surplus, the staff workgroup will be reporting through the internal real estate management
process.
Comments and/or Discussion and/or Justification:
Ellesmere Road Site, Scarborough (Ward 15):
Located on the north side of Ellesmere Road about one hundred and twenty-five metres east
of Kennedy Road, the site has an area of approximately 2.9 acres. Access is via a service
road which parallels Ellesmere Road. Ellesmere is grade separated at the CNR/LRT line. As
a result, parallel "slip roads" were constructed to provide access to the adjoining properties.
Land Use:
The Official Plan designation of the site is, General Industrial with High Performance
Standards. The current zoning of the site is, M-Industrial.
Immediately adjacent on the east side of the Ellesmere site is the LRT and CNR line which
run in a north/south direction. To the north are a series of multi-tenant industrial buildings,
to the west along Kennedy Road, development is a mix of commercial and industrial, south
of Ellesmere Road, development is predominately industrial.
Planning staff from the Scarborough District office advise that residential uses at this
location are not compatible with the surrounding industrial development and the objectives
of the former City of Scarborough Official Plan to encourage additional employment uses in
this vicinity. The location of the property in the centre of an industrial area, would separate
residents from amenities such as schools and parks. A secondary issue is the safety of
pedestrians, particularly children, having to traverse major arterials or industrial streets to
reach these facilities. In addition, surrounding land uses could have potentially significant
noise, visual and environmental impacts on abutting residential uses.
Transportation Division staff advise that there is a long term goal to provide a road
connection between Ellesmere Road and Progress Avenue to the north at this location.
While there is no formal Council policy in this regard, staff view this connection as an
important long term component in the effort to provide relief to the problematic Ellesmere
Road/Kennedy Road intersection.
Grand Avenue, Etobicoke (Ward 2):
This is a large site (approx. 7.5 acres), with residential development to the east and west. It
is south of the recently occupied Mystic Pointe development which converted the former
McGuiness property to residential uses. Its southern limit is a park abutting the rail corridor.
Based on the surrounding uses, residential development appears to be an appropriate use.
However, the site was a former sewage treatment plant and incinerator. While there are
extensive environmental analyses on hand, more work will have to be done to determine the
level of clean-up required to reach either an industrial or a residential standard, and to
estimate the cost of each. This work will be required prior to disposal for either purpose.
Therefore the site should be held while this work is carried out. Depending on the estimated
costs of clean-up, and the likely recovery based on the intended future use, a determination
can be made as to the more feasible alternative. While this environmental work is underway,
planning staff can consider possible residential development scenarios, exploring various
densities and forms. Then, assuming that the clean-up costs are manageable, staff can
undertake a proposal call for appropriate residential development. The site is designated as
High Density Residential in the Etobicoke Official Plan. However it is zoned for industrial
uses. A re-zoning of this site prior to offering it for development is recommended.
Legion Road, Etobicoke (Ward 2):
The site is zoned Class 1 Industrial and is designated as Open Space in the Official Plan. It
is south of the Grand Avenue property, and north of Lakeshore Boulevard. Residential
development is immediately to the west with office and commercial uses to the south. The
Mimico creek to the east may be a source of flooding and further investigation with the
Toronto and Region Conservation Authority is required. Consideration must also be given
to contamination which may have flowed south from the former sewage treatment plant
north of the tracks. Given the environmental concerns raised, the property may not be
suitable for residential development and further investigation is recommended.
Wilson Heights Blvd. (Ward 8):
There are six sites in this group, irregular parcels formed at the ends of blocks where Wilson
Heights crosses the east/west streets at an angle. The surrounding neighborhood is fully
developed with good quality singles and semis. While the zoning is residential, the North
York Bylaw only permits singles and semi-detached houses. The median price for single
family houses in the area is $246,000.00. There are no recorded sales of attached row units.
Condominium townhouses have a median of $195,600.00. This is apparently an asking price
as no sales are recorded. Units which are $20 - 30,000.00 below market would still be priced
too high to require or justify public intervention in their creation. Staff therefore concludes
that these sites, which could only yield a small number of units, would be better sold for full
market value. Efforts could more effectively be devoted to sites with the potential for
achieving a greater number of units.
N/E Corner of Bayview and York Mills (Ward 9):
There is no surplus property at this location.
S/E Corner, Lawrence W. and the Allan Road (Ward 22):
This site appears to be in a suitable location for the proposed residential use. The
community to the east and south is residential. A shopping center is located at the
north-west corner of the intersection, and public transit is nearby.
The property has been designated as an Arterial Corridor Area under the North York
Official Plan. This Particular designation does permit residential development. While North
York Council had approved the development of the property for social housing purposes in
1994, the project was canceled when the Province ended the funding for such ventures in
1995. As a result the zoning was never changed and it appears that a re-zoning of the site
would be necessary.
Staff are investigating the status of the original proposal, i.e.; whether the design is specific
to the original user group or would be suitable for a general market, who owns the drawings,
etc. This is an opportunity that should be pursued.
Conclusions:
The Wilson Heights and Ellesmere Road sites should be released for immediate sale by the
Commissioner of Corporate Services. The remaining sites should be retained, and staff
directed to report further on the preferred development options, through the Council
Strategy Committee for People Without Homes, once the required information has been
gathered and various strategies considered.
Contact Name:
R. Mayr, AACI, Director of Real Estate, Telephone (416) 396-4930, Fax
(416)396-4241rmayr@city.scarborough.on.ca
R. Cressman, A/Director of Policy and Programs, Shelter, Housing and Support
Division,Telephone (416) 392-0601, Fax (416) 392-0548, rcressma@city.toronto.on.ca
_______
The Corporate Services Committee reports, for the information of Council, having also had
before it the following communications:
(i)(August 10, 1998) from the City Clerk, enclosing for information and any attention
deemed necessary, Clause No.2 contained in Report No.11 of The Corporate Services
Committee, headed "Expediting the Disposal of Property and Reduction of Leased Space",
which was adopted, as amended, by the Council of the City of Toronto at its meeting held
on July29, 30and31, 1998; wherein it states that City Council amended this Clause by
adding thereto the following:
"(4)the following motion be referred to the Commissioner of Corporate Services for report
thereon to the meeting of the Corporate Services Committee scheduled to be held on
September 14, 1998:
Moved by Councillor Balkissoon:
'That the foregoing motion by Councillor Layton be amended to provide that the Ellesmere
Road site be examined separately.' "; and
(ii)(September 10, 1998) from Councillor Lorenzo Berardinetti, Chair, Scarborough
Community Council, Councillor, Scarborough City Centre, advising that he strongly objects
to the sale of the site on Ellesmere Road, between Kennedy Road and Midland Avenue, for
the purpose outlined in the report () from the Commissioner of Corporate Services; that this
is an industrial area surrounded by industrial and commercial properties, and is totally
inappropriate that the site would be considered for residential development of any kind; and
trusting that his concerns will be taken into consideration during the debate respecting this
item.