April 14, 1999
To:North York Community Council
From:Rob Dolan
Acting Director, Community Planning, North District
Subject:PRINCIPLES OF DEVELOPMENT REPORT
ZONING AMENDMENT & DRAFT PLAN OF SUBDIVISION APPLICATION
Glenarda Properties Ltd.
20 Bond Avenue
Lot 5, Plan M-525
UDZ-98-13 & UDSB-1238
Ward 11 - Don Parkway
Purpose:
This report recommends that the application to amend the Industrial Zone One (M1) uses on
the property located at 20 Bond Avenue to permit live/work uses not be approved. This report
establishes Principles of Development which direct that the current applications be revised to
include an official plan amendment to redesignate the lands to Residential Density One RD1
with appropriate limited residential intensification zoning and a re-configured road network.
The applicant has referred the applications to the Ontario Municipal Board. A pre-hearing
conference has been scheduled for May 17, 1999. Council should have an adopted position for
the purposes of this pre-hearing.
Recommendations:
It is recommended that:
(1)The application to amend the Industrial Zone One (M1) uses on this property to permit
live/work uses not be approved;
(2)That the current application be revised:
(a)to amend the Official Plan to redesignate these lands as Residential One (RD-1) with a
part C.9 specific Development policy to permit limited residential intensification of 34 units
per hectare (14 units per acre) as may be appropriate,
(b)to revise the application for draft plan approval to reflect the re-configured road network
shown on the attached Schedule "D1",
(c)to revise the application for draft plan approval and rezoning
-to provide a mix of one family detached and semi-detached dwellings,
-to generally meet the zoning standards of the R6 and RM2 zones as appropriate, and
-to permit limited home occupations only on those properties which front on Scarsdale Road
or abut lands zoned M1 subject to the applicable parking standards for the accessory use;
home occupations are limited to professional office and professional business office.
(d)to revise the application for draft plan approval to meet the conditions of the Works and
Emergency Services Department, Technical Services Division (Schedule "E");
(3)That community consultation with the residents in the area and with the employment
landowners on Scarsdale Road continue with the revised applications;
(4)A final report on these applications be prepared with appropriate conditions of approval
when the applicant has perfected their revised applications and that staff give Notice of a
Statutory Public Meeting at the appropriate time; and
Background
Proposal
The original rezoning and draft plan of subdivision applications submitted for this site were
for a mixed use development consisting of 82 residential units (27 detached houses and 55
townhouses), stand alone office uses and park land for a total FSI of .90. The size of the
proposed park was 0.04 hectares (0.1 acres). The single detached dwelling units were to be
located along the west side of the site, adjacent to the single detached dwelling lots on
Charnwood Road and fronting on to Bond Avenue. The interior of the site was for multiple
attached townhouse units. Each of the residential units were to be designed to include a
dedicated work space as an accessory use to the main residential living area. The commercial
office building proposed for the Scarsdale Road frontage proposed independent office uses as
well as support services for the home based office space and sought to maintain a strong
employment presence on the site. It is this original application which is before the OMB.
The following table provides statistics for the site.
Site Area |
2.3 hectares (6 acres) |
Detached Houses |
27 |
Townhouses |
55 |
Gross Floor Area - Residential Uses |
13,405 m2 (144,294 sq.ft.) |
Commercial Block |
0.3 hectares (0.7 acres) |
Gross Floor Area - Commercial Use |
1,511 m2 (16,265 sq. ft.) |
Gross Floor Area All Uses |
14,916 m2 (160,560 sq.ft.) |
Park |
0.04 hectares (0.1 acres) |
An official plan amendment application was not submitted because the application was
submitted under the Industrial policies in the official plan which permit applications for
live/work subject to specific development criteria.
Revised Proposal:
After considerable community consultation, the application was revised. The revised proposal
has evolved from a live/work development concept to a more traditional style of housing. The
revised application proposes a zoning by-law amendment and the subdivision of the site in
order to permit a development consisting of 14 single detached dwelling units and 68
semi-detached dwelling units (total 82 residential units), and park land uses as shown on
Schedule "C". The single detached houses would be located adjacent to the west of the site,
nearest to the existing residential properties on Charnwood. The semi-detached units would
front onto a new internal road network and onto Bond Avenue and Scarsdale Road.
Each of these residential units would be designed to include a dedicated work space such as an
office. The work space would be a separate area in the residential unit and function as an
accessory use to the main living area. The stand alone office building was deleted.
The following table provides revised statistics for the site.
Site Statistics |
|
Site Area |
2.3 hectares (6 acres) |
Detached Houses |
14 |
Semi-Detached Homes |
68 |
Total Number of Dwelling Units |
82 |
Gross Floor Area all uses |
20,363 m2 (219,200 sq.ft.) |
Gross Floor Area office/employment uses |
6,109 m2 (65,759 sq. ft.) |
Office |
30% of the total gross floor area per unit |
Density |
35 units per hectare (14 units per acre) gross |
Park |
0.04 hectares (0.1 acres) |
Planning Controls:
Official Plan
The site is currently designated Industrial which permits employment (Schedule "A") up to a
Floor Space Index of 1.0. Industrial areas are intended to accommodate a wide range of
industrial and other employment uses.
Official Plan policies affecting this site are found in Appendix "A".
The Metropolitan Toronto Official Plan identifies Metropolitan Industrial/Employment Areas
to meet its objective of maintaining a sufficient supply of industrial lands and a diversity of
employment necessary to enhance Metropolitan Toronto's economic competitiveness. The
subject lands have not been identified as part of the inventory of Metropolitan
Industrial/Employment Areas.
Zoning
The site is zoned Industrial Zone One (M1) which permits employment uses (Schedule "B").
A zoning by-law amendment is required to permit the additional uses requested under this
application.
Community Consultation
A community consultation meeting was held on October 19, 1998. Three working group
meetings were subsequently held on November 23 and December 15, 1998 and February 22,
1999. A number of concerns were raised by those in attendance at the meeting, including the
concept of live/work, density, built form, traffic, privacy, precedent of use, and the ability of
services in the area to accommodate development. A summary of the comments raised by the
community are attached as Schedule "L". A copy of all of the submissions made are available
for viewing in the Planning Department and will be available at the statutory public meeting.
The issues raised by the community are addressed in the Discussion section of the report. Staff
have also met with members of the Don Mills Residents Inc. and with several residents on
Charnwood Road.
A final working group meeting was convened on February 24, 1999 at which time the revised
plan for the site was presented.
In response to community concerns, the revised plan was submitted which no longer includes
townhouses or the central office building. Further changes have also been made, such as
increased lot frontages and setbacks generally increasing the residential character of the
proposal closer in character with the abutting residential community.
Other Department Comments:
A summary of the comments received from departments and agencies circulated is included in
Appendix "D". Only the Economic Development Division, Economic Development Culture &
Tourism Department objects to the proposed redevelopment of this site. The comments of the
Director, Business Development & Retention are attached as Schedule "K".
Economic Development cites the reinvestment which has occurred at 115 Scarsdale Road by
Bell Express Vu and the reinvestment which has occurred at 75 Scarsdale Road by QUAD
Engineering. The continued viability of these operations is important.
They assert the economic viability of the 20 Bond site should be upheld since it is one of only
6 properties over 5.0 acres available within the North York community
They have four concerns with this application:
- the limited supply of employment sites 5 acres or greater;
- the precedent of residential uses on Scarsdale Road encouraging more residential uses
which could undermine the continued viability of Scarsdale Road for employment
purposes;
- the erosion of the non-residential tax base;
- the lack of credibility for the live/work concept and the lack of any policy in place which
would provide the city with commercial assessment based on the live/work designation.
Within the context of the revised proposal they do not support the deletion of the commercial
office block in favour of semi-detached dwellings. They anticipate truck/ automobile conflicts
on Scarsdale Road.
A discussion of the four areas of concern cited by Economic Development is found in
Appendix "F".
Discussion
Location and Existing Site Analysis
The 2.3 hectare (6.0 acres) site is located on the northwest corner of Bond Avenue and
Scarsdale Road, which is east of Leslie Street and south of York Mills Road on the edge of the
industrial area. The site is occupied by a one storey older industrial building that was owned
by Ingram and Bell Inc., which had specialty uses for office, production and storage with a
customized building configuration designed to meet their specific needs. The site does not
have exposure on a minor or major arterial road or highway.
Industrial uses are located immediately to the north and across the street east of the site. These
are TelCom Equipment who refurbished used telephones, located directly north of the site at
30 Scarsdale Road (presently up for lease); Aztech New Media Corp., an office use, located
across the street at 1 Scarsdale Road; and, Grenville Printing, located at 25 Scarsdale Road.
Further north along Scarsdale Road is a mix of uses, including office, industrial, private
schools and churches. Southwell Park is also located north of the site. Immediately to the west
of the site and south of Bond Avenue are residential communities with single family detached
houses. (See Schedule "N" for existing land uses.)
The site is located at the southern edge of an older Industrial area, bounded to the north by
York Mills Road, the south by Bond Avenue and a residential community, the west by a
residential community and to the east by the CNR line. The industrial area is bisected by
Scarsdale Road which runs south from York Mills Road to Bond Avenue. Bond Avenue and
Scarsdale Road are local roads. The Wrenthem Estate Business Park is located to the north
and east of the Scarsdale Road industrial area, with the two areas being separated by a CNR
line.
All of the lands within this area are designated Industrial, permitting a wide range of industrial
and other employment uses at an FSI of 1.0. The zoning in the area is M1 (Industrial Zone
One) and M2 (Industrial Zone Two) with the site at the corner of York Mills Road and
Scarsdale Road zoned MC(H) (Industrial- Commercial Zone), all of which permit a variety of
industrial and employment uses.
The character of the industrial area along Scarsdale Road is one of a mix of uses. Industrial
users include private commercial schools, churches, offices, automotive uses and storage. A
map of the existing land use on Scarsdale Road is attached as Schedule "D2". Scarsdale Road
is reflective of the success of the original Don Mills Garden City concept which positioned
low rise industrial/employment uses on large well appointed, generously landscaped lots
immediately adjacent to very stable and desirable single family enclaves.
A 1997 survey of users in the Scarsdale Road industrial area, conducted by the Planning
Department, yielded the following information about this industrial area:
- offices, warehousing and distribution uses were predominant,
- many businesses were tenants rather than owners who had been there less than 10 years,
and
- businesses were moving elsewhere to accommodate expansion.
A 1997 Employment Survey of the Scarsdale Road area, also conducted by the Planning
Department, identified the total number of employees as 1,607. The figures for 1997 by
employment type are found below.
Manufacturing and Warehousing |
575 |
Retail |
179 |
Service |
53 |
Office |
636 |
Institutional |
44 |
Other |
120 |
Total |
1,607 |
Historically, there has always been a mix of employment uses in this industrial area, as
evidenced by employment figures dating back to 1983 (See Appendix "E"). There has been a
decline in employment in the Scarsdale Road Industrial area since the 1993 survey was
undertaken. The area was not surveyed in 1998, so further declines, such as the departure of
Ingram and Bell Inc. with approximately 220 employees have not been documented. The
predominant employment use on Scarsdale Road is not manufacturing and warehousing but is
office, retail and other.
The Banbury Residential Community is adjacent to the Scarsdale Road industrial area. The
neighbourhoods immediately west and south are designated Residential Density One (RD-1)
which permits single detached dwellings, and semi-detached dwellings subject to certain
criteria at a maximum density of 20 units per net hectare (8 units per net acre). The zoning in
these residential areas is R4 (One-Family Detached Dwelling Fourth Density Zone) which
permits one family detached dwellings. These areas are occupied by single detached dwellings
with generously sized lots.
Community facilities and services in the area, including such uses as parks, schools, roads and
servicing, are adequate.
Industrial Policy Review
In July 1996 Council adopted the report "Industrial/Employment Areas Study: A Discussion
Paper" which examined trends and issues affecting the City's industrial/employment lands,
explored future employment potential of the City's industrial lands and suggested steps the
City take to reinforce their continued viability and attract new uses for these lands and existing
buildings. The discussion paper identified North York Core Industrial/Employment Districts
for the purpose of consolidating those lands best able to accommodate future
industrial/employment growth while still providing land which has the flexibility to
accommodate opportunities for new uses. The subject site was not identified as being part of
the core Industrial/Employment lands. Those lands not included are still considered a valuable
resource for the City. In those areas where continued industrial use of lands is no longer
considered to be reasonable or appropriate, however, re-use for non-employment uses may be
considered subject to a series of evaluation criteria. The Industrial review included the
participation of staff from various departments, including Planning and Economic
Development.
The City is undertaking an employment/industrial land strategy as part of the new Official
Plan review. Redesignating this site at this time will not jeopardize this strategy.
Concept of Live/Work:
Live/work is an innovative concept which was introduced by OPA 443. It combines work with
living space within the same unit. Dwellings which combine work with living space comprise
live/work accommodation. There have not, however, been any applications for rezoning
approved under the Industrial Zoning of a property for live work as described in OPA 443
since it has been adopted.
The Industrial Policies of the official plan indicate that dwellings are permitted in industrial
areas as an accessory use provided they support and are compatible with the primary use of
the land for employment purposes. Offices are permitted in all industrial areas provided the
combined gross floor area for all offices on a lot does not exceed the lesser of 5000 m2 or 0.5
FSI. Additional office development may be permitted along the edge of the industrial areas
adjacent to residential areas.
On this site, the applicant has proposed that each of the residential units will have the capacity
to have limited employment uses in the form of a home office. No more than 30% of the gross
floor area of the dwelling unit will be permitted to be used for these employment uses. In
addition, such uses can only be conducted by a member or members of the household who
reside in the dwelling unit as their principal residence. It is clear, however, that the character
of the application is predominantly (70%) residential rather than employment. Rather than a
credible live/work proposal the evolution of the application, particularly as a consequence of
the extensive community consultation, has increasingly taken on the character of a residential
redesignation with an extensive component of home occupation permissions. Live/work in an
industrial employment designation is not the same as home occupation in a residential setting.
In the former, the employment use is predominant whereas in the latter the employment
component is accessory.
For this site, there is an opportunity for home occupations in the dwelling units having
frontage on Scarsdale Road and on the northern perimeter of the site.
Criteria for Redesignation for Residential Purposes:
The Criteria for the redesignation of industrial lands are set out in the official plan as follows:
Part C.8Section 5.3.0. Redesignation of Industrial Lands for Non-Industrial Purposes
Part C.4Section 6.0 Criteria to Guide the Redesignation of Non-residential Lands to
Residential
Redesignation of Industrial Lands for Non-Industrial Purposes:
(a)the land proposed for redesignation should be on the periphery of an industrial area;
The subject site is located on the edge of the Scarsdale Road industrial area, bounded on two
sides by residential uses. There are industrial employment uses to the north and across the
street on the east side of Scarsdale Road. These are TelCom Equipment who refurbish used
telephones, located directly north of the site at 30 Scarsdale Road, Aztech New Media Corp.,
an office use, located across the street at 1 Scarsdale Road and Grenville Printing, located at
25 Scarsdale Road.
The majority of lands along Scarsdale have been rezoned to M1 as part of the Industrial
Review because of their proximity to the existing residential community. The west side of
Scarsdale Road, and the property directly across the street at 1 Scarsdale Road have been
zoned to M1. There are still two parcels on the east side of Scarsdale Road (25 and 31)which
are zoned M2.
The total supply of industrial land in the Leslie/York Mills industrial area is 41 hectares
(101.1 acres). The subject site is 2.3 hectares (6 acres) or 6% of the total land area of this
industrial area. A 1997 inventory of serviced industrial land for the former City of North
York, prepared by the Economic Development Centre, was 2,469 hectares (6,100 acres). The
subject site represents 0.09 % of the inventory. In the amalgamated City, this figure would be
less. This indicates that this site, on the edge of an industrial area, does not represent a large
portion of the City's industrial inventory.
(b)the proposed redesignation will not jeopardize the planned role and function of other land
use districts nor set a precedent for further redesignations;
The proposed redesignation of the site will not jeopardize the planned role and function of the
remaining industrial area for the following reasons:
- The site is located on the periphery of the industrial area, not in the middle of employment
uses, reducing the opportunity for conflict,
- The City has not received any other applications to redesignate lands in the area for
residential uses,
- OPA 443 broadened the types of employment uses permitted, putting less pressure on
employment lands to be redesignated.
The proposed designation will not jeopardize the role and function of the residential land use
district because there are adequate community facilities and services to support new
residential development.
In order to further discourage interior redesignations, the subdivision road network should be
revised to create a block along the northern perimeter of the site which under the current
application is an open sided road allowance inviting more residential development on the
adjacent property. Having development lots turning their backs to the existing industrial use to
the north, will increase the self-sufficiency of the redevelopment area to be defined separately
from the employment area and will minimize the opportunity for this abutting property to also
be redesignated creating a domino effect up the street.
(c)the new land uses will not negatively impact the viability and stability of any of the
remaining industrial lands in the long term;
Being located on the edge of the industrial area, and having road access to Bond Avenue,
means that access and traffic on Scarsdale Road is minimized. The area has a mix of industrial
uses, some of which (churches, private schools, storage units) could be supported by
residential uses.
The industrial employment policies have been opened up to permit a broader range of
employment uses. These permitted employment uses, unlike conventional heavy industrial
uses are naturally attracted to perimeter areas which already abut long term stable residential
areas.
(d)the boundaries for change:
-will be logical and appropriate for the area;
-will provide opportunities to minimize incompatibilities between land uses, and
-will create a defined edge which will be stable over the long term;
The boundary is logical and appropriate for the area. Incompatibilities between land uses can
be minimized by the location of the site on the edge of the industrial area, adjacent to existing
residential communities. The northern boundary of the site which is immediately adjacent to a
site with existing industrial uses is being addressed by having rear lots back onto the industrial
use. By having the rear of lots as the boundary, a defined edge is created which will minimize
the opportunity for residential redevelopment to the north.
The location of residential uses on this site will make the site more inviting for residents in the
area, particularly those to the south, to use Southwell Park. It is a more inviting environment
and will draw people into the park.
The subdivision, with single detached units on the west side of the site and semi detached
units on the remainder of the site, will function as a transition between the residential and
industrial uses.
(e)the new development will fit within the context of surrounding existing development in
scale, height and built form;
Existing development in the area consists of one and two storey single family detached
dwellings and low to medium rise industrial uses. Single detached dwelling and
semi-detached dwellings, generally consistent with the R6 and RM2 zoning provision and
RD-1 Official Plan policies, can fit within the context of limited residential intensification.
Residential Density One permits single detached and semi-detached dwellings. Semi-detached
dwellings are permitted subject to rezoning, at locations designated for residential use which
form the edge between the residential use and industrial use, provided that the lot proposed for
semi-detached use flanks a lot or lots designated for industrial purposes. This redevelopment
site flanks industrial lands and addresses an industrial street and semi-detached dwellings may
be considered in this context.
(f)the density and massing of new development should complement the existing built form
context;
The density of the new development will generally be consistent with the density permitted for
limited intensification infill residential development in an RD-1 land use district. The massing
of the new development can be consistent with the existing residential areas and can
complement the existing built form.
The built form for development on this site should be low-rise in nature to complement the
surrounding built form in both the industrial (which consists of low rise industrial buildings
and offices) and the residential area (which consists of one and two storey residential units).
Comparable limited intensification in the form of single family and semi-detached dwelling
lots have recently been approved in North York. Examples include 16 detached units on Risa
Boulevard (UDOZ-97-39 approved in June 1998), 195 semi-detached and multiple attached
dwellings on Rochefort Drive/Ferrand Drive (UDZ-97-52 approved in October 1998) and 10
single detached units on Granlea Road, Calvin Road and Vonda Avenue (UDZ-98-17
approved by Council February 1999).
(g)the new development can be integrated and linked into the fabric of surrounding
community, where appropriate, such as through provision of public streets, pedestrian
walkways and the location of public parks;
The new development can be integrated and linked to the community through a pedestrian
link from one of the new streets to the existing Southwell Park, which fronts onto Charnwood
Road. The new development will also be linked into the community by Bond Avenue
sidewalks and the sharing of recreational facilities at Bond Park.
The residential community to the west of the site will not experience significant reductions of
sunlight or privacy since the new development is low-rise in nature. The single detached units
proposed on the west side of the site will be 8.8 metres in height, consistent with zoning
by-law requirements for residential zones. The privacy of the existing single family dwelling
units to the west of the site will be protected by the preservation and enhancement of the
existing mature cedar hedge, located on the site and by the rear yard setbacks for the new
houses. The lands immediately abutting existing single family dwelling lots on Charnwood
Road can more appropriately carry forward a similar single family built form. Along this edge
there is a significant difference in grade with the 20 Bond Avenue site depressed about a
metre below the Charnwood lots. There is also a mature line of approximately 15 foot high
cedars which separate the two areas which is to be retained. There will not be overview
problems.
Redevelopment should be guided by the desire to achieve a comfortable, lively, safe and
attractive public realm. The impacts of the garages and car parking at the front of the houses
should be minimized while the amount of soft landscaping should be maximized. Part C.4 of
the Official Plan includes guidelines for urban design features. Additional guidelines are also
provided in Appendix "B".
(h)the continued operation of existing industrial uses which remain in the area of a
redevelopment can be encouraged through such measures as the phasing of development, the
provision of on-site building yard setbacks, landscaped areas, intervening facilities, buildings
and fencing, and the protection of trucking routes and driveways;
The operation of existing industrial uses which remain in the area could be encouraged by
additional rear yard setbacks and fencing/ landscaping along the northern property boundary.
(i)that adequate parkland, amenities, community facilities and social services can be
provided for future residents;
The new development will become part of Don Mills and as such will have the benefit of
having schools in an open space setting, a linked park system, and trees and landscaping of a
matured community.
Adequate parkland, community facilities and services can be provided for future residents.
Comments received from various City Departments and the school boards do not object to the
proposal.
The proposed development site is on the edge of the industrial area and surrounded on two
sides by residential communities with existing accessible community facilities and social
services. In addition to these existing services, the proposed development will provide a
portion of its parkland dedication requirement in the form of an on site dedication which will
expand Southwell Park and provide access to future residents from their development. The
balance of the parkland dedication will be used for improvements to Southwell Park. With
regards to schools, neither Board has objected to this development. Access is available to
community facilities and services.
(j)that sufficient sewer and transportation capacity can be provided to meet the needs of the
redevelopment areas; and,
Interim sewer capacity exists in the Don Trunk system which would be made available for this
development should it be approved by Council. Evaluation of the Traffic Impact Study
indicates that traffic generated by the proposed development can be accommodated on the
area road network. The existing employment uses on the west side of Scarsdale Road function
well now immediately adjacent to a residential area. The transportation analysis of the
proposal indicates that the traffic generated will be less than that associated with the former
use. The new traffic can be accommodated on the area road network and a gap study indicates
the intersection of Leslie Street and Bond Avenue can accommodate the turning movements.
The planned function of Scarsdale Road should not be adversely affected.
(k)that the environmental conditions of the development area are suitable for the proposed
land use.
The industrial history of this site has necessitated an environmental site assessment and peer
review, which have been undertaken for the site which has not precluded residential
development on the site. Approval of the proposed application will be conditional upon the
City and MOEE receiving a completed record of site condition.
A satisfactory Phase One environmental audit and peer review will be required prior to the
adoption of any official plan amendment. All of the required strategies for the remediation of
the site including indemnification of the city and the requirement for a record of Site
Condition satisfactory to the Ministry of Environment will be secured through the execution
of the subdivision agreement prior to registration of the plan.
Criteria to Guide the Redesignation of Non-residential Lands to Residential
Under Council's Housing policies, adopted October 1997, Council may consider official plan
amendments that propose to redesignate non-residential lands to a residential land category
when, in Council's opinion, community services and facilities are in place or can be provided
to serve the proposed residential development and cumulative impact of the redesignation for
residential use does not have an undue negative impact on existing community facilities and
transportation facilities and transportation facilities and municipal servicing capacities.
Further, Council may consider application to redesignate non-residential land to residential
land use when one of the following conditions apply:
1)There is a demonstrated need to improve or rejuvenate areas due to obsolescence or
physical or economic decline; OR
2)The introduction of residential land use will not jeopardize the continued viability of
commercial, industrial, institutional and open space land uses.
These Housing criteria are in addition to the General Development Criteria and the Criteria to
Guide the redesignation of lands to a higher density which are also set out in Part C.4 -
Housing Policies of the Official Plan.
Information has been received from the applicant regarding efforts to sell/lease/develop the
property, which have been underway since 1997. Ingram and Bell Inc. relocated to more
efficient space and to a site where they can have 24 hour per day operations. It is their position
that because of the age of the building and its many deficiencies, it has been difficult to lease
or sell the property. The deficiencies include:
- poor building configuration and layout;
- low ceilings in a portion of the warehouse which limits the storage of product;
- the setup of the lab with concrete walls, the prohibitive costs associated with tearing down
the interior walls in the lab and/or office and lunchroom areas in order to make it useable;
- the high cost of maintaining and heating the building;
- the higher taxes as compared to other areas;
- difficulties associated with using side shipping doors;
- potential lack of maneuverability of large trucks and poor circulation;
- concerns as regards to location, accessibility and visibility in that the site does not have
direct access from or exposure to any of the major highways, and
- being adjacent to an existing residential area, where there were complaints from adjacent
residents, a factor to be considered for 24 hour per day operation with any degree of noise
or smell.
The conclusions of the realty agent acting on behalf of the applicant is that the existing older
industrial building on the site had specialty uses and a unique building configuration which
would be costly to retrofit and maintain.
Staff have consulted with the City's Realty Services staff regarding the comments of the
applicant's realty agent. They have concluded that given today's economic climate, the
information provided and conclusions reached are reasonable.
Conclusion
The revised proposal has evolved from a live/work development concept to a more traditional
residential development. An official plan amendment is required to permit development on
the site, which satisfies the Official Plan criteria for redesignation of industrial lands to
residential uses.
The principles of development in this report provide direction for revisions to the application
to amend the Official Plan to redesignate these lands as Residential and re-configure the road
network.
Contact Name:
Gwen Manderson, Senior Planner
Telephone: (416) 395-7117 Fax (416)395-7155
Rob Dolan
Acting Director, Community Planning, North District
Appendices and Schedules:
Appendix "A" Official Plan Policies
Appendix "B" Urban Design Guidelines
Appendix "C" Comparison of Zoning Provisions
Appendix "D" Summary of Comments from Other Departments
Appendix "E" Employment by Type for Scarsdale Road Area
Appendix "F" Discussion-Concerns of the Economic Development, Culture and Tourism
Department
Schedule "A" Official Plan Designation
Schedule "B" Zoning
Schedule "C" Site Plan
Schedule "D" Draft Plan of Subdivision
Schedule "D1"Re-configured Road Network
Schedule "D2"Existing Land Use
Schedule "E"Comments-Works and Emergency Services Department (Public Works)
Schedule "F"Comments-Works and Emergency Services Department (Transportation)
Schedule "G"Comments-Toronto District School Board
Schedule "H"Comments-Toronto District Catholic Board
Schedule "I"Comments-Economic Development Culture & Tourism (Parks and Recreation)
Schedule "J"Comments-Public Health Department
Schedule "K"Comments-Economic Development Culture & Tourism (Economic
Development)
Schedule "L"Summary-Community Consultation
APPENDIX "A"
OFFICIAL PLAN POLICIES AFFECTING THE LANDS AT 20 BOND AVENUE
Part C.8 Industrial Policies
Section 5.3.0Redesignation of Industrial Lands for Non-Industrial Purposes
Council recognizes that with little vacant land available for new development, additional
housing and employment uses must be accommodated in part through the conversion of one
land use to another. While Industrial areas should generally be preserved for employment
purposes, it is recognized that the City has more land designated for this purpose than is
required in the long term. Accordingly, Council may, in limited circumstances and subject to
the policies of this plan, consider applications that propose to redesignate Industrial land for
other purposes, including residential, institutional, recreational, and commercial purposes or a
combination of those uses, subject to compliance with the following criteria and the
applicable policies of the land use district for the proposed use:
(a)the land proposed for redesignation should be on the periphery of an industrial area;
(b)the proposed redesignation will not jeopardize the planned role and function of other land
use districts nor set a precedent for further redesignations;
(c)the new land uses will not negatively impact the viability and stability of any of the
remaining industrial lands in the long term;
(d)the boundaries for change:
-will be logical and appropriate for the area;
-will provide opportunities to minimize incompatibilities between land uses, and
-will create a defined edge which will be stable over the long term;
(e)the new development will fit within the context of surrounding existing development in
scale, height and built form;
(f)the density and massing of new development should complement the existing built form
context;
(g)the new development can be integrated and linked into the fabric of surrounding
community, where appropriate, such as through provision of public streets, pedestrian
walkways and the location of public parks;
(h)the continued operation of existing industrial uses which remain in the area of a
redevelopment can be encouraged through such measures as the phasing of development, the
provision of on-site building setbacks, landscaped areas, intervening facilities, buildings and
fencing, and the protection of trucking routes and driveways;
(i)that adequate parkland, amenities, community facilities and social services can be
provided for future residents;
(j)that sufficient sewer and transportation capacity can be provided to meet the needs of the
redevelopment areas; and,
(k)that the environmental conditions of the development area are suitable for the proposed
land use.
Section 5.1.0Compatibility Criteria
Development applications which propose additional uses or density may create impacts on
adjacent uses beyond those which may be expected from redevelopment for industrial
purposes. To assess and manage those impacts, Council may approve rezoning of lands within
Industrial areas, to permit additional uses or density where the development proposal, together
with any specific conditions required by Council, meets the following Compatibility Criteria
to the satisfaction of Council.
(a)The proposed development should be adequately served by transportation facilities and
be compatible with any transportation improvement plan.
(b)The traffic generated from the proposed development should not result in an
unacceptable level of arterial road service.
(c)Traffic on local, collector or minor arterial roads within Residential Communities should
not be increased by the proposed development to a level that would adversely affect pedestrian
safety.
(d)The proposed development should provide satisfactory movement of employees and
visiting pedestrians, and provide for adequate site circulation so that visiting automobiles and
commercial vehicles are unlikely to disrupt bordering streets or properties.
(e)The proposed development should provide for sufficient parking so that off-site roadways
and unaffiliated parking areas are unlikely to be disrupted.
(f)Dwellings within Residential Communities should not experience significant reductions
of sunlight and privacy resulting from the proposed development.
(g)The design, site layout, landscaping, and building placement of the proposed
development should be generally consistent with the existing or proposed development.
(h)The proposed development should not be of such a nature or scale as to destabilize
nearby neighbourhoods in designated residential areas and remaining nearby industrial uses.
Section 5.2.0Redevelopment of Industrial Lands for Live/Work Accommodation
Dwellings which combine work space with living space comprise live/work accommodation.
Live/work accommodation can provide a land use buffer between residential lands and
industrial lands as well as meeting the needs of some employment uses for combined
residential/employment occupancy. Recognizing the hybrid residential/employment character
of live/work accommodation, Council may approve rezoning to permit this use in Industrial
areas provided that the following compatibility criteria, in addition to those set out in Section
5.1, are complied with to the satisfaction of Council.
(a)The character of the proposed development should blend with the character of the
surrounding area.
(b)The proposed development should fit within the context of the neighbouring
development in scale, height and building form.
(c)The proposed development should be integrated and linked, as appropriate, to the
neighbouring residential community.
(d)The proposed development should ensure a compatible relationship with existing
employment activities through such measures as building setbacks, maximum height limits,
fencing, landscaping and protection of industrial trucking and access routes.
(e)Adequate parkland, recreational amenities, community facilities and social services
should be available for future residents.
(f)Sufficient sewer and transportation capacity should be provided to support the needs of
the redevelopment area.
(g)The environmental conditions of the development area should be suitable for the
proposed land use.
Part C.4 Housing Policies
Section 3.0 Specific Residential Land Use Policies
Section 3.1 Residential Density One (RD-1)
Permitted Uses
In Residential Density One (RD-1) designation, the following residential uses shall be
permitted subject to the provisions of this Plan and the Zoning By-law:
1)Single detached and semi-detached dwellings. Semi-detached dwellings may be permitted
subject to rezoning and where one of the following apply:
1.Where the lot proposed for semi-detached use is on a street where other semi-detached
dwellings exist.
2.On a major or minor arterial road where the arterial road forms the edge or boundary of a
residential neighbourhood as set out in the zoning by-law.
3.At locations that form the edge between RD-1 and RD-2 to RD-5 land sue categories,
provided that the lot proposed for semi-detached use flanks a lot or lots designated for a
higher density.
4.At locations designated for residential use but which form the edge between the
residential use and a commercial, industrial or mixed use, provided that the lot proposed for
semi-detached use flanks a lot or lots designated for commercial, industrial or mixed use
purposes.
Density
Subject to the other provisions of the section, the development of single detached dwellings
on lands designated Residential Density One (RD-1) shall not exceed a density of 20 dwelling
units per net residential hectare (8 upa). Semi-detached dwellings are permitted provided that
the density on the site of a semi- detached dwelling does not exceed approximately 30
dwelling units per net residential hectare (12 upa).
Height
The maximum height permitted on any site shall be specified in the Zoning By-law.
APPENDIX "B"
URBAN DESIGN PRINCIPLES AND GUIDELINES
Official Plan
Part C.4 Housing Policies
Section 4.0Development Criteria
Section 4.2.3 Urban Design Features
1).....
2).....
3).....
4)Council shall encourage the preservation of trees, in advance of, and after redevelopment
of a site.
Additional Guidelines
In addition to the above, the following additional guidelines shall apply to this site to promote
a comfortable, lively, safe and attractive public realm by minimizing the impact of garages
and car parking at the front of the houses, maximizing the amount of soft landscaping and
ensuring the appropriate relationship of houses to roads:
Building Siting and Organization
(a)houses fronting on two streets should address both streets, with a high level of
architectural finish including windows as appropriate and that the entrance to the front of the
house address the major street;
(b)driveways should be grouped or paired;
(c)the height of the steps to the front door of the house should not exceed 1.65 metres (5.4
feet);
(d)the house, or part thereof, should be in front of the garage when facing the street;
(e)a 6.0 metre (19.6 feet) setback to the face of the garage should be provided; and
Pedestrian Amenity
(f)a landscape plan should be provided which illustrates the following:
(i)the maintenance and preservation of the row of cedar trees along the west side of the site,
backing onto the Charnwood Road properties,
(ii)new trees planted approximately 7.0 metres on centre in the public boulevard along all
streets,
(iii)on lots more than 9.15 metres (30 feet)wide, the driveway width should not exceed 3.05
metres (10 feet) at the front lot line and may expand to a maximum width of 4.9 metres (16
feet) at the garage entrance, to accommodate a double garage, with two doors rather than on in
the front wall,
(iv)on lots less that 9.15 metres (30 feet) wide, the driveway width should not exceed 2.6
metres (8.5 feet) at the front lot line and entrance to a single garage in the front wall,
(v)adequate front gardens defined by planting and other soft landscaping, and
(vi)rear yards which are screened from adjacent uses with trees and fences.
APPENDIX "C"
COMPARISON OF ZONING PROVISIONS OF RECENTLY APPROVED SMALL
LOT SINGLE DETACHED AND SEMI-DETACHED UNITS WITH THE R6 AND
RM2 ZONES
|
Risa
Boulevard
16 single
detached units
R7
(Exception) |
Rochefort/
Ferrand Drive
195
semi-detached
and multiple
units
RM1(exception) |
Granlea/
Calvin/
Vonda
10 single
detached
units
R7
(Exception) |
R6
single
detached
units |
RM2
includes
semi-detached
units |
Lot Area |
250 m2
minimum |
Not to apply |
227 m2 |
371m2 |
300
m2/semi-detached dwelling unit
and 665 m2 per
semi detached
dwelling |
Lot
Frontage |
7 m to 8.5 m |
13.5 m for
semi-detached
units
Not to apply for
multiple units |
7.6 m |
12m
minimum |
8.5 m and 18 m
minimum |
Front
Yard
Setback |
7.5 m
|
3 m to main
dwelling and
5.5 m to garage |
3.0 m |
6.0 m (+
or - 1.0
m)
|
7.5 m
|
Side Yard
Setback |
1.2 - 0.6 m |
1.2 m |
0.6 m |
1.2 to
1.8 m |
1.2 m to 1.8 m |
Rear
Yard
Setback |
4.3 m |
6 m |
|
9.5 m |
9.5 m |
Lot
Coverage |
35% |
Not to be
applied |
50% all
buildings,
structures
including
garage |
30% |
30% |
Building
Height |
8.8 m/3
storeys |
9.2 m or 3
storeys
whichever is
less |
8.8 m/3
storeys |
8.8 m/2
storeys |
9.2 m/2 storeys,
whichever is
less |
APPENDIX "D"
SUMMARY OF COMMENTS FROM OTHER DEPARTMENTS AND AGENCIES
The original proposal was circulated to all of the Departments and agencies listed below. The
revised proposal was circulated to: Technical Services, North District Office of the Works and
Emergency Services Department; Transportation Services Division of the Works and
Emergency Services Department; Parks and Recreation, Policy and Development Division of
the Economic Development Culture & Tourism Department; and, Economic Development
Division, Economic Development Culture & Tourism Department. The following section
summarizes the comments received from the departments and agencies circulated:
The Technical Services, North District Office of the Works and Emergency Services
Department have no objection to the proposal subject to the conditions outlined in their
comments attached to this report as Schedule "E". Their comments are to be in addition to the
Standard Conditions of Approval for Subdivisions which shall form part of the conditions for
Draft Plan Approval. They advise that the allocation of the Interim Sanitary Truck capacity for
this development is subject to Council approval of this application, and that consideration of
this development should include the fact that the equivalent population increase generated by
this development will result in an equal decrease in interim trunk capacity available to other
developments in the Don Trunk area. They also advise that they do no support a reduced road
allowance width and endorse the standard 20 metre wide road allowance. A stormwater
management report and plan is required to be submitted by the owner's consulting engineers
which must be approved by the City.
The Transportation Services Division of the Works and Emergency Services Department
have no objections to the proposal subject to the conditions outlined in their comments being
addressed (See Schedule "F"). The traffic generated by the proposed development can be
accommodated on the area road network. In response to concerns expressed by local residents
that traffic generated from the proposed development will infiltrate the local community, a
traffic investigation will be undertaken once the development is complete to determine the
level of traffic infiltration and what mitigating measures may be required. Any measures
proposed will be done through the area Councillors and in consultation with the community
affected.
The Toronto District School Board advises that the anticipated students from the proposed
development currently can be accommodated at Rippleton Public School, but the Toronto
District School Board may be required to make alternative accommodation arrangements for
some or all of these students once this school reaches its capacity (Appendix "G"). The
anticipated student yield from the proposed development can not be accommodated at St.
Andrews J.H.S., Windfields J.H.S. and York Mills C.I. and alternative accommodation
arrangements will be required for these students.
The Toronto Catholic District School Board advises that although the Board does not object
to the proposed development, it would like to express its concern regarding the lack of
permanent facilities and overcrowding at St. Bonaventure Catholic School, Loretto Abbey and
Senator O'Connor Catholic Secondary School. It also advises that Marshall McLuhan
Catholic Secondary School is now under construction, and serves the subject area and will be
able to accommodate secondary students in permanent facilities. Their comments are attached
as Schedule "H".
The Parks and Recreation , Policy and Development Division of the Economic
Development Culture & Tourism Department comments are attached as Schedule "I".
They advise that the applicant's 5% parkland dedication will be provided through both an on
site dedication and cash-in-lieu. The cash payment will be secured through the subdivision
agreement. This cash payment is to be used for the expansion of and improvements to
Southwell Park. The applicant will be required to meet with the Department's Urban Forestry
By-law Officers and execute a Tree Preservation Agreement prior to by-law enactment.
The Public Health Department have no objections to the proposed application provided that
an environmental site assessment is completed in accordance with the MOE's Guideline For
Use At Contaminated Sites in Ontario, revised February 1997. The environmental site
assessment should identify any significant potential environmental liabilities at the site that
may have resulted due to the historical usage of the site, and to identify any present conditions
or practices that may represent a materially significant environmental risk. Their comments
are attached as Schedule "J".
The Economic Development Division, Economic Development Culture & Tourism
Department does not support the application in its present form. They feel that the property is
still a viable industrial property, are concerned that the development, if approved will set a
precedent for this employment area. Further there is little assurance that the new development
will be anything other than a residential neighbourhood. Finally, the rezoning and plan of
subdivision proposed in this application will likely in a reduction in municipal tax revenue
while increasing the City's ongoing servicing costs. Their comments are attached as Appendix
"K".
APPENDIX "E"
EMPLOYMENT BY TYPE FOR SCARSDALE ROAD INDUSTRIAL AREA SURVEY
RESULTS FOR 1983 TO 1997
Type of Employment |
1983 |
1986 |
1989 |
1991 |
1993 |
1996 |
1997 |
Manufacturing &
Warehousing |
548 |
682 |
597 |
621 |
757 |
773 |
575 |
Retail |
481 |
438 |
350 |
388 |
358 |
201 |
179 |
Service |
70 |
210 |
77 |
105 |
71 |
26 |
53 |
Office |
891 |
875 |
910 |
873 |
825 |
523 |
636 |
Institutional |
n/a |
9 |
13 |
6 |
n/a |
4 |
44 |
Other |
n/a |
19 |
n/a |
48 |
n/a |
0 |
120 |
Total |
1,990 |
2,233 |
1,947 |
2,041 |
2,011 |
1,527 |
1,607 |
Source: City of Toronto Planning Department, April 1999
APPENDIX "F"
CONCERNS OF THE ECONOMIC DEVELOPMENT CENTRE, ECONOMIC
DEVELOPMENT, CULTURE AND TOURISM DEPARTMENT
- the limited supply of employment sites 5 acres or greater;
An industrial user who needs or wants a 5 acre or greater site will do so through severance or
consolidation of properties in any industrial area in the City. The existing character of the
Scarsdale Road industrial properties is that of smaller parcels able to respond to a variety of
industrial employment users needs.
- the precedent of residential uses on Scarsdale Road encouraging more residential uses
which could undermine the continued viability of Scarsdale Road for employment
purposes;
The 1997 Planning Department survey of industrial users in the Scarsdale Road area asked
about the future plans of each of the businesses. Of the eighteen businesses that provided a
response, twelve or 66% indicated that they will stay in the area.
In 1995, there were preliminary discussions with City staff about the possible development of
58 and 66 Scarsdale Road for townhouses. Staff did not encourage an application on this site
because of the site being located in the middle of the Scarsdale Road area.
Other than the subject site, no applications have been made for the residential redevelopment
of lands in the Scarsdale Road industrial area. Since this application has been received, there
have been no development pressures for residential development in this area.
- the erosion of the non-residential tax base;
Ingram and Bell Inc. relocated to another industrial property because they were not able to
intensify their operation on this site to 24 hours per day. Limited hours of operation is a
consideration for potential industrial users. The likelihood of finding a manufacturing and
warehouse user who does not operate 24 hours per day is not high. In the City, buildings are
being demolished if they can't be leased. Without another industrial user, the building would
have been demolished and lower taxes would have been collected on a vacant property.
Redevelopment of the site for residential will provide significant property taxes.
- the lack of credibility for the live/work concept and the lack of any policy in place which
would provide the city with commercial assessment based on the live/work designation.
The character of the application, through community consultation and other forces has
evolved with a strong residential character which outweighs the original live/work concept.