STAFF REPORT

October 28, 1999

To: Scarborough Community Council

From: Ted Tyndorf

Director of Community Planning, East District

Subject: PRELIMINARY EVALUATION REPORT

Official Plan Amendment Application SC-P1998017

3585 & 3595 St. Clair Avenue

Part of Lot 27, Concession B, Part of Block A, Registered Plan 2898 and

Part of Blocks A, B & C, Registered Plan 3086

Birchmount Park Employment District

Scarborough Bluffs

Purpose:

This report provides a preliminary evaluation of an application to amend the Official Plan for a 7.6 hectare (19 acre) property located on the south side of St. Clair Avenue, east of Danforth Road and Kennedy Road. At the present time, the subject lands are designated for industrial uses in the Official Plan. The applicant is seeking a redesignation to provide for medium density residential, institutional and commercial development. The submission of this application provides an opportunity to develop comprehensive long-term land use plans for the entire16 hectare (40 acre) quadrant in which this site is situated. The recommendations which follow establish the parameters for the planning review.

Financial Implications and Impact Statement:

None at this time.

Recommendations:

That Scarborough Community Council direct staff to process this application in the normal manner with the following additional requirements:

1. The applicant to submit the following supporting studies:

a) A transportation study examining the traffic impacts generated by redevelopment of the quadrant bounded by St. Clair Avenue, Danforth Road, Kennedy Road and the CN Railway;

b) An environmental analysis demonstrating the safety of the site for the proposed uses;

c) A noise study examining noise attenuation measures for the proposed development; and

d) Urban design principles guiding the redevelopment of this quadrant including the development of a suitable interface between existing industry and new development as well as provision for a new neighbourhood park.

5. The above studies are to be submitted in conjunction with an application for a plan of Subdivision and Zoning By-law Amendment. Staff will assess whether a Site Plan Control application will also be required at this stage.

6. As part of the planning exercise, staff are to undertake a review of appropriate land use designations for the quadrant bounded by St. Clair Avenue, Danforth Road, Kennedy Road and the CN Railway.

7. The applicant to continue to explore with City staff the opportunity to incorporate employment-generating uses in any potential redevelopment scheme.

5. That Scarborough Community Council convene a Public Meeting to consider these applications after the above requirements have been satisfied with a target date for the second quarter of 2000. The notice of the Public Meeting is to be provided to all assessed persons within 120 metres (400 feet) of the subject property.

Background:

The subject lands consist of two ownerships being 3585 and 3595 St. Clair Avenue. There are 3 buildings on the subject lands. All three buildings are considered to be dysfunctional due to low ceiling heights and the deteriorating condition of the buildings.

As is illustrated on Figure 2, the site is bordered by commercial development and a church on the north side of St. Clair Avenue and the CN Railway to the immediate south. To the east is a pedestrian access to the GO Station. On the west border is a mix of commercial/institutional uses and a residence fronting onto Danforth Road and several industrial operations with frontage on Kennedy Road. Beyond this quadrant, there are stable residential communities to the north, south, east and west.

There are 14 ownerships within the 16 hectare (40 acre) quadrant bounded by St. Clair Avenue, Danforth Road, Kennedy Road and the CN Railway. Other than the applicant's lands, four ownerships occupy 7 hectares (17 acres) of the remaining 8 hectares (20 acres). The major property-owners are Paradise Lanes bowling alley (1.8 hectares/4.5 acres), Tri-Star Plastics (0.9 hectares/2 acres), Noma Inc. (Woods) (3 hectares/7 acres) and Borisko Brothers (Hudson Movers) (1.3 hectares/3 acres).

The subject lands are situated within the Birchmount Park Employment District (see Figure 4.35). The District consists of a discontinuous ribbon of lands between Birchmount Road and Midland Avenue, immediately north of the CN Railway. The subject lands together with the Kennedy Road properties are designated General Industrial Uses with High Performance Standards. The remainder of this quadrant, being the lands fronting onto Danforth Road are designated Institutional-Recreational, Places of Worship and Industrial District Commercial. The existing zoning reflects the Official Plan land use designations.

This application has been before the municipality since October of last year. Our initial review indicated it was premature in the absence of a proposal for the comprehensive redevelopment of the entire quadrant. Taken alone, an application to redesignate the subject lands to residential uses raised issues of incompatibility with surrounding industrial and auto-related commercial uses as well as concerns regarding the destabilization of this employment area. In addition, various technical reports together with accompanying Subdivision and Zoning By-law Amendment applications were not submitted.

Since that time, the applicant has been working to respond to these issues. The owners in this quadrant have been approached and have provided their support to the principle of a comprehensive redesignation to residential uses. In addition, considerable effort has been devoted to responding to the concerns of the Economic Development Division regarding the potential destabilization of this employment district. Although supporting reports as well as accompanying applications have not been submitted, the applicant has indicated a willingness to undertake the necessary reports and file applications if Council supports the principle of their current Official Plan Amendment application.

Two potential residential development scenarios developed by the applicant are shown on Figures 3 and 4. In order to maintain employment-generating opportunities, the applicant is also exploring the marketability of ancillary commercial development as well as a senior's related institutional development

Comments:

Potential Benefits

This application presents the opportunity to transform what is currently an unsightly parcel of land into an appealing residential community. The availability of 7.6 hectares (19 acres) in the short-term coupled with the availability of a further 8 hectares (20 acres) in the long-term presents the opportunity to develop comprehensive plans for a new community. The construction of new housing will undoubtedly improve the image of the area complimenting the residential neighbourhoods which surround this quadrant. New residential development would add to the supply and variety of housing opportunities. The new residential population would increase the utilization of local services, existing infrastructure and area businesses and contribute to the tax base of the City.

Potential Concerns

As has been articulated by the City's Economic Development Division, the proposed redesignation would remove opportunities to generate employment and industrial taxation from the subject lands. Moreover, it could serve to destabilize the adjacent viable industries on Kennedy Road and the larger Birchmount Park Employment District. These concerns have been given extensive attention by the applicant, City Planning staff and Economic Development staff.

There is little disagreement that the buildings on the subject site are inadequate for satisfying the needs of contemporary industry and that leasing problems will continue to be encountered. Moreover, the applicant has put considerable effort into exploring the possibility of redevelopment for employment-generating uses including industrial (e.g., garment manufacturing, warehousing and storage), entertainment, recreational, commercial and auto related. This has been documented by the applicant who, in consultation with professional advisors, submits that there is little potential for these alternative forms of redevelopment at the present time and likely into the future. Notwithstanding this submission, the applicant believes there is merit in continuing to explore ancillary commercial opportunities as well as possible institutional uses such as senior's related housing and facilities.

The applicant's consultation with the three industries on Kennedy Road suggests that apart from ensuring a proper interface/buffer between their operations and the new development, they believe that redevelopment of the applicant's lands will not undermine their ability to conduct their businesses nor affect their long-term decisions regarding the use of their properties for industrial purposes. It is anticipated that in the short to mid-term, the industrial uses will continue to operate pending any future redevelopment for residential purposes.

Simply retaining the industrial designation will not attract industrial development. The area in which the subject lands are situated is not exclusively industrial and over time has evolved into its current mixed-use character. The introduction of residential uses would appear to be a viable alternative given the site's context and would provide a variety of benefits to the neighbourhood and to the City. Moreover, the proposed redesignation should not undermine the viability of the Birchmont Park Employment District as the subject lands are physically more integrated with the immediate mixed-use neighbourhood than the ribbon of industrial properties which comprise the Employment District. To the extent possible, the opportunity to achieve compatible employment-generating uses on the subject lands should continue to be pursued as this would enrich the project and would support the efforts of the City to attract employment-generating uses.

Conclusions:

The applicant has put forth a genuine effort to respond to the initial concerns of Planning staff regarding the prematurity of the application as well as the concerns of the Economic Development Division. In addition, the applicant has demonstrated a willingness to undertake the background studies needed to support this application. The potential benefits arising from this application are sufficient to initiate a planning review of this quadrant. Our recommendations set out the requirements for processing this application and incorporate the issues raised by City departments to date.

Contact:

Ms. Jayne Naiman, Senior Planner

Scarborough Civic Centre

Telephone: (416) 396-7040

Fax: (416) 396-4265

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

Ted Tyndorf, MCIP, RPP

Director of Community Planning, East District

JN/

List of Attachments:

Figure 2 Context Map

Figure 4.35 Birchmount Park Employment District Secondary Plan

Figure 3 Concept Plan - Option 1

Figure 4 Concept Plan - Option 2