Date:June 8, 1999

To:Scarborough Community Council

From:Ted Tyndorf, MCIP, RPP

Director, Community Planning, East District

Subject:FURTHER OPPORTUNITIES IN KNOB HILL AND CLIFFCREST

SUPPLEMENTARY REPORT

City Initiated Official Plan Amendment Application

Former Scarborough Transportation Corridor Lands Study

Phase 3 West - St Clair Avenue to Brimley Road (W96052)

Cliffcrest Community, Birchmount Park and Knob Hill Employment Districts

Scarborough City Centre and Scarborough Bluffs

Purpose:

This report outlines the public consultation process undertaken since the Public Meeting deferral on February 17, 1999, and presents revised recommendations to amend the Official Plan for the lands in the study area indicated on Figure 1.

The Official Plan Amendment (OPA) now recommended would affect lands owned by the City of Toronto and Monarch Construction, as illustrated on Figure 2. The proposed development opportunities represented by the land use changes recommended in this report would support the City's emerging housing policies.

Financial Implications:

None at this time.

Recommendations:

It is recommended that City Council:

(A)Official Plan

(1)amend the Birchmount Park Employment District Secondary Plan by:

(a)replacing the Special Study Area designation on the north side of St Clair Avenue with a Medium Density Residential designation; and

(b)transferring the lands bounded by St Clair Avenue, Midland Avenue and the railway to the Cliffcrest Community Secondary Plan;

(2)amend the Knob Hill Employment District Secondary Plan by:

(a)replacing the Special Study Area designation with Low and Medium Density Residential use designations;

(b)deleting the western and southern portions of the Industrial Area Uses designation south of the railway and introducing Low and Medium Density Residential use designations; and

(c)transferring all of these redesignated lands south of the railway to the Cliffcrest Community Secondary Plan;

(3)amend the Cliffcrest Community Secondary Plan by:

(a)adding the lands referenced in Clauses A.1 and A.2 above;

(b)deleting the proposed connection between Andrew Avenue and Brimley Road;

(c)introducing a Medium Density Residential designation on the east side of Midland Avenue to the north of the Highway Commercial designation;

(d)replacing the Industrial Area Uses designation around Vivian and Jeanette Streets with a Low Density Residential designation;

(e)designating a bicycle/pedestrian path throughout the length of the study area from St. Clair Avenue East to Brimley Road; and

(f)introducing new Numbered Policy 9 as follows:

9. West of Brimley Road, South of the Railway

1.When considering development applications, Council shall encourage consolidation of properties to achieve a comprehensive development which allows for an appropriate road pattern and overall stormwater management, while remaining compatible with the existing single family homes in the area and the businesses along St Clair Avenue. Council shall consider proposals for phased development, to permit portions of the lands to be developed over time.

2.The road network to serve new development shall provide a grid system based on connections to Brimley Road, St. Clair Avenue and Midland Avenue, while minimizing the impact of new traffic on the existing residential streets in the area. Council may consider reduced rights-of-way, provided that the safe and orderly movement of vehicles, bicycles and pedestrians is secured, and that public utilities and services can be accommodated.

3.Proponents of development shall submit technical studies addressing transportation impacts, stormwater management, environmental impacts, tree preservation and provision of piped services. Consideration shall be given to designing managed wetlands to retain and purify stormwater run-off from developed areas while preserving existing wetland habitat.

4.Residential development on lands abutting the railway shall be designed to minimize the impact of noise and vibration, and shall be set back from the railway in accordance with the requirements of the railway company.

5.The boundary between medium and low density residential development shall be determined in conjunction with detailed development applications.

(B)Other Matters:

authorize such unsubstantive technical, stylistic or format changes to the Official Plan as may be required to give effect to this resolution.

Background:

On February 17, 1999, Community Council had before it a report dated February 1, 1999 entitled "Further Opportunities in Knob Hill and Cliffcrest", to be considered during a Public Meeting under the Planning Act. Community Council granted a request to reschedule the Public Meeting, so that further consultation could occur prior to further consideration of the City-initiated application on June 23. Several meetings have been held in the community and the residents' opinion obtained. This report outlines that opinion and discusses the issues.

Discussion:

Community Meetings in 1999

As noted in the February 1 report, on January 28, a general meeting for the community contacted by mail to the notification area was held at John A. Leslie school on Midland Avenue. In addition to the Ward Councillors and city staff about 70 members of the public were in attendance. Six residents indicated their interest in serving on a Working Group to discuss the issues.

On March 4 and April 1, meetings of the Working Group were held with staff in attendance to discuss land use and park planning issues.

On May 6 another general meeting was held, with notice being provided through the ward Councillors' offices: about 50 residents attended.

The Working Group recommendations, endorsed by the audience at the general meeting, are illustrated on Figure 3. The basic intent is to retain the industrial designations on the privately owned lands in the study area, while redesignating the City-owned lands for park uses together with a cycling and pedestrian trail from Brimley Road to Midland Avenue. This land is intended to remain in public ownership. If applications are received for a change of use on the private lands, these are to be dealt with in the usual way.

Industrial Uses in Knob Hill Employment District

The former Canada Lands Company (CLC) property, now owned by Monarch Construction, is designated and zoned for industrial uses. The lands are vacant and most of the property has not been developed, except for some short-lived rail sidings many years ago. The strip lying north of the Metropolitan Life (MetLife) site was occupied by more active spur lines serving the former Livingston terminal building at one time, but these have recently been removed.

The MetLife site contains two warehouse, the smaller westerly one occupied by Warner Lambert and the larger easterly one mainly occupied by Nike as a distribution centre for its sporting goods and apparel as well as a call centre. A small portion of the easterly building is occupied by a company called Dart Logistics. Economic Development and Planning staff have met with Nike management to discuss their long-term plans for the building. Both Nike and staff of Economic Development have expressed strong opposition to an Official Plan Amendment (OPA) being applied to this property. The owner had previously (June 1998) supported residential uses on the property, but has recently expressed opposition to any redesignation. Copies of the letters are attached.

The Knob Hill district is included in the Industrial/Employment Land Needs Study being conducted as input to the new City of Toronto Official Plan. The study is nearing completion, but will not be dealing with specific sites or estimates of the land bank required for future development of employment-generating uses.

Policy planning staff in the East District recognize that this area is undergoing change, and that its original locational supports of the railway and the planned Scarborough Expressway no longer play a role in its viability. Even Nike does not use the railway for deliveries at this location, preferring to truck its bulk deliveries from marshalling yards west of Toronto. However, staff are prepared to support the retention for the time being of the existing industrial designation on the MetLife site and the narrow strip of former rail land abutting it to the north. New development in the area will have to be designed to function as a stand-alone phase, with adequate interim buffering from the industrial uses.

Parkland Issues

Parks planning staff have advised that this community is not deficient in local parkland under the current Official Plan policies. However, from a functional stand-point, they have investigated the potential of the City property to provide for active sports fields and recreational space, and have provided cost estimates.

The triangle west of Midland Avenue could contain a mini soccer or baseball pitch and parking for about 30 cars, although its shape and isolation make it a difficult site for park uses. More sports facilities, playgrounds and a water park, as well as washrooms, could be installed on the balance of the City-owned lands.

Development costs for these facilities would be approximately as follows:

Full size baseball diamond or two mini size$200,000

Full size soccer pitch or two mini size$75,000

Lighting for one of the above$200,000

Parking space including driveways etc$1,200 each

Playgrounds with swingset, climbing frame etc$75,000

Waterpark$125,000 minimum

Washrooms$80,000

Trees$300 each

Asphalt Pathways, etc.$35 per square metre

The City's parkland policies provide for about 1.2 hectares (3 acres) of parkland for every 300 dwelling units, or cash-in-lieu of land based on the land value at the time building permits are issued.

A new policy provides for such cash-in-lieu to be placed in a fund, with half being devoted to the acquisition of land for parks, and half allocated to park facilities and development. Of each portion so allocated, one half is to be retained for expenditure in the District which generated the funds, with the balance being spent on City-wide deficiencies. If the City were to retain its land in this area for park uses, then cash-in-lieu could be collected from development and used to develop active play space.

The policies also provide for the retention of existing natural features within park designs.

Housing Issues

The areas of the various parcels are as follows:

Monarch lands17.2 acres

City Triangle4.4 acres

City lands east of Midland 27.5 acres

A rough estimate of the possible yield of new housing units has been made on the basis of the proposed mix of low and medium density uses. After making allowances for roads, parks and other dedications, low density would yield about 8 units per acre overall, while medium density would yield about 15 units per acre. Using these rates, the triangle could produce about 65 units, the Monarch lands about 200 units, and the other City lands about 220 units for a total of 485 maximum.

The Housing First Policy for City-owned property has been considered by the Corporate Services and Budget Committees and goes to the full Council on June 9, 10 and 11. The proposed policy would make suitable surplus City-owned property available for affordable housing purposes, to implement Recommendation 76 of the Report of the Mayor's Homelessness Action Task Force. A process is identified for assessing the housing potential of surplus City lands before other uses and/or sale are considered. Affordable housing would be provided by community groups and/or the private sector. It is known that the subject lands are of considerable interest to the Housing, Shelter and Support Division of Community and Neighbourhood Services.

Property Tax Issues

Productive industrial uses on these lands would generate substantial tax revenues for the City and require little in the way of municipal services in return. Parkland would generate no revenue, and would require some capital and operating investment to be functional as active recreational space. Residential uses would involve both tax revenue and municipal servicing: normally the servicing costs outweigh the revenue for low density housing.

However, despite the industrial use permissions, no development has been forthcoming here.

Conclusions:

Staff continue to support the introduction of residential uses as proposed in the February 1 report, but recognise that redesignation of the Metropolitan Life Insurance Company property may be premature at this time. In view of the concerns expressed by Economic Development staff, by the owner, and by the major tenant in the MetLife property, it would be wise to defer any redesignation of this industrial use until more is known of the future plans of Nike.

Staff now propose the introduction of residential uses on the balance of the lands west of Brimley Road, as indicated on Figure 4. Opportunities for a linear park and trail along the lands should be protected, together with the identified wetland and woodlot areas. Residential development will entail the dedication of parkland as well as more open space for storm water detention and management.

The proposed development guideline policies provide for the sensitive treatment of existing homes as well as the submission of various technical studies to support more detailed development proposals. Further public input will be essential in taking the study to its conclusion in terms of zoning by-law amendments and plans of subdivision submitted in conjunction with concrete development proposals. The Working Group could continue to function in this regard.

Through the draft amendment, a range of land uses is proposed which meets the objectives of the City in several ways: retention of some green space and protection of the environment; proposals for a bicycle and pedestrian trail connection between two GO Transit stations; opportunities for a return on the City=s investment in land which may be released for sale and development; provision of infill housing in a location well served by public transit and other infrastructure; and potential revitalization of this area of the City.

Contact Name:

Carolyn Johnson, MCIP, RPP

Program Co-ordinator, Transportation Division

Telephone:(416)-396-5376

Fax:(416)-396-4265

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

Ted Tyndorf, MCIP, RPP

Director, Community Planning, East District

City Planning Division

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RECREPORT.05