May 12, 1999

To:Toronto Community Council

From:Commissioner of Urban Planning and Development Services

Subject:1 Dundas Street West (Toronto Eaton Centre), Application No. 999021 Request for approval of a site specific amendment to Chapter 297, Signs of the former City of Toronto Municipal Code to permit signage on the Yonge and Dundas Street facades of the Toronto Eaton Centre including a media tower (Ward 24- Downtown)

Purpose:

To review and make recommendations respecting an application for a site specific amendment to Chapter 297, Signs, of the former City of Toronto Municipal Code to permit the erection of a variety of first and third party signs on the Yonge and Dundas Street facades of the Toronto Eaton Centre including a media tower

Financial Implications:

Not applicable

Recommendations:

It is recommended that:

1.Application No. 999021 to permit the erection of 32 signs and sign areas on the Yonge and Dundas Street facades of the Toronto Eaton Centre including a media tower, be approved substantially in accordance with the plans on file with the Commissioner of Urban Planning and Development Services;

2.The City Solicitor be authorized to submit a Bill in Council substantially in accordance with the provisions set out in Appendix A, in consultation with the Commissioner of Urban Planning and Development Services, to amend Chapter 297, Signs, of the former City of Toronto Municipal Code, to permit the installation of signage proposed by this application on the Yonge and Dundas Street facades of the Toronto Eaton Centre including a media tower;

3.The Commissioner of Urban Planning and Development Services report directly to Council, if necessary, in the event that a proposed encroachment of Sign No. 17 is recommended; including consideration of the following:

a)that an encroachment agreement be entered into between the applicant and the City of Toronto for the encroachment of Sign No. 17 identified on Maps attached to this report, to the satisfaction of the Commissioner of Works and Emergency Services in consultation with the Commissioner of Urban Planning and Development Services;

b)that the City Solicitor be authorized to submit a Bill in Council to amend Metro By-law No. 118 to permit the encroachment of said Sign No. 17; and

c)that the lease of rights including, but not limited to air rights, commercial uses and signage be reviewed by the Commissioner of Works and Emergency Services and be subject to a fair market rental determined by the Commissioner of Corporate Services and payable to the City of Toronto, Transportation Services Account, as of the installation date;

4.The applicant be advised , upon approval of Application No. 999021 of the requirement to obtain the necessary permits from the Commissioner of Urban Planning and Development Services;

5.The applicant, Cadillac Fairview Corporation Ltd., pay all legal costs of the City of Toronto in the preparation and registration of any agreements required;

6. The applicant be advised that the City reserves the right to amend the proposed by-law in the future with respect to the signs and sign areas proposed by this application in order to address potential future conflicts which may arise with respect to ensuring pedestrian and vehicle safety in the vicinity and potential future conflicts with respect to existing or future residential buildings in the vicinity.

7.The appropriate City officials be authorized and directed to undertake the steps necessary to give effect to the foregoing.

Background

Cadillac Fairview Corporation Ltd. is undertaking a major reconstruction of the exterior of the Toronto Eaton Centre along Yonge Street between Queen and Dundas Street. Phase I, which is currently under construction between Queen Street and Trinity Way, includes a new facade with individual storefronts accessible from the street and large format fascia signage on a 3 metre strip of land purchased from the City. Phase I received Site Plan Approval on April 21, 1998 and an amendment to Chapter 297 of the former City of Toronto Municipal Code on November 25, 26 and 27, 1998 (By-law 835-1998).

Phase II of the reconstruction from Trinity Way north to Dundas Street includes a minor expansion of the Eaton's store within the existing colonnade area on Yonge Street, the reconstruction of the Yonge Dundas corner entrance pavilion and the erection of a media tower above the corner pavilion. The Committee of Adjustment approved a minor variance on February 18, 1999 for the height of the proposed "Eaton Centre Media Tower" structure. Site Plan Approval is pending for Phase II and will be issued in May 1999.

The purpose of this report is to discuss the application by Cadillac Fairview to amend Chapter 297, Signs, of the former City of Toronto Municipal Code to permit signage on the facade of the Phase II reconstruction including signage on the "Eaton Centre Media Tower".

Site and Surrounding Area

The site is located on the west side of Yonge Street, south of Dundas Street West (see Figure 1).

The site, known municipally as 1 Dundas Street West, accommodates the Toronto Eaton Centre including the Eaton's department store.

The site is immediately to the west of a new public square which is under development south of Dundas Street East. North and east of the square, additional development is planned including "Metropolis", a retail and entertainment complex which will include large format signage. To the south of the new public square on the east side of Yonge Street between Dundas Square and Shuter Street are a variety of retail stores, services and office uses in buildings ranging up to 6 storeys or 20 metres in height. North of the site, there is a new Gap store with enhanced parapet signage and the Atrium on Bay, where new retail uses and a 55-metre media tower are under construction.

The immediate context of this site is almost exclusively non-residential with Ryerson Polytechnic University to the north east across the new public square and a variety of commercial buildings in the surrounding area. Further to the east, along Dundas Street East, there is residential development which, with the creation of the public square, will have a view west to Yonge Street and portions of the signage which is proposed. The nature of this impact is discussed in the Planning Considerations below.

Since 1994, City Council has approved a number of initiatives with a view to stimulating the revitalization of lower Yonge Street, centred on the intersection of Yonge and Dundas Streets. Known as the Downtown Yonge Street Regeneration Program, the initiatives have included the adoption of a Community Improvement Plan including a facade improvement program, Official Plan and Zoning By-law amendments and undertaking the Yonge Dundas Redevelopment Project, a four-parcel redevelopment on the east side of Yonge Street which includes the aforementioned public square and Metropolis project.

These initiatives are intended to provide a stimulus for private sector reinvestment in the area which has included large scale improvements such as the development of a media tower by the Atrium-on-Bay and the reconstruction of the Toronto Eaton Centre exterior. This area of Yonge Street is emerging as an "urban entertainment centre" featuring showcase retail, entertainment uses including cinemas and live theatre, restaurants and spectacular, large format and high quality signage. It is anticipated that the image of Yonge and Dundas will strengthen as a focal point for residents, workers and tourists when the unique experiential quality of the area is enhanced by additional complimentary redevelopment.

Proposal

The proposal is to amend Chapter 297, Signs, of the former City of Toronto Municipal Code to permit various types of signage to be affixed to the building facade and proposed media tower at the corner of Yonge and Dundas. In general, the signage proposal is an extension of the pattern of signage and the sign types approved for both Phase I of the Eaton Centre facade reconstruction and the Atrium Media Tower to the north of Dundas Street.

32 signs or sign areas are proposed as follows (See maps attached to this report):

a)9 large format fascia signs located on the upper Eaton's department store Yonge Street facade;

b)7 small format fascia signs located within a reconstructed 2-storey base along the lower Eaton's department store Yonge Street facade;

c)5 sign areas for fascia and animated signage located in a parapet signage band wrapping around the corner of Yonge and Dundas capping a reconstructed entrance pavilion including 1 rotating sign which will enclose a "pop-out" stage used for special events;

d)9 building or tenant identification signs in various sizes in individual sign letter or fascia sign formats at various locations on the upper Eaton's department store facade and above building entrances;

e)1 feature animated sign at the corner of Yonge and Dundas; and

f)a media tower providing a general display area for signage, including on-site projecting signage, above the podium at Yonge and Dundas .

Compliance with Chapter 297, Signs, of the former City of Toronto Municipal Code

The general areas of non-compliance with Chapter 297, Signs, of the former City of Toronto Municipal Code for the following sign types as numbered on the maps attached to this report are as follows:

SignSign Description of sign and compliance issue

Types Numbers

a)1, 2, 3, 4 and 7 1 - 99 Fascia signs used for the purpose of identification and/or third party advertising; compliance issues include: signs not permitted on the upper facades of the building; exceeding the maximum areas for signs; interference with windows (although they are windows of exit stairs only); proximity to other large signs; and third party advertising not permitted

b)610 - 167 Fascia signs used for the purpose of identification and/or third party advertising; compliance issues include third party advertising not permitted and the lack of a relationship to the commercial unit

c)5, 8 and 1124 - 329 Sign Letter Identification Signs; compliance issue is that certain locations are above permitted heights for building identification signs

d)9171 Fascia sign (rotating stage location); compliance issue includes exceeding the maximum areas for signs; not permitted on the upper facades of the building; proximity to other large signs; third party advertising not permitted and encroachment into Right of Way beyond permissible extent

e)10, 12, 13 and 1518 - 214 fascia parapet area; compliance issues same as d) above

f)1122Media Tower: The proposed media tower does not comply with Chapter 297, signs of the Municipal Code in that it is an undefined sign type. Recognizing this, the application contemplates a site specific exception to permit signage to be affixed at any given time to the media tower subject to the standards and regulations set out in the exception; other issues of compliance: exceeds the extent of coverage permitted, animated signage will face Dundas Street West, proximity to other large signs and interference with windows.

g)1623Corner Animated Sign; compliance issues include undefined sign type

While a significant number of the above noted signs encroach into the Yonge or Dundas Street road allowances, the proposed encroachments are within 0.45 metres which is permitted under the Metro by-law governing former Metropolitan Road Allowances.

Sign No. 17 is associated with a proposed stage area located on the roof area approximately 11 metres above grade. This stage area would be used for special events primarily held in the new public square on the east side of Yonge Street. Subject to appropriate use and design requirements, the stage would "pop out" or project into the road allowance with the sign dropping or rotating below it to facilitate a clear view. The maximum encroachment is approximately 3.65 metres into the road allowance when the stage area is deployed and 11 metres above grade, with a component hanging below the deployed stage at 6 metres above grade. The appropriateness of this encroachment is under review and may require further reporting in respect of the any encroachment agreement which may be required and the amendment of former Metro By-law No. 118.

Planning Considerations

a)Compliance with the Official Plan:

Both the Part I Official Plan and Section 18.355 contain policies which provide a framework supportive of the proposed sign by-law amendments in this application. This area generally between Queen Street and College Street, which has been identified as Downtown Yonge Street, is designated a Prominent Area, a Priority Retail Street and a Reinvestment Area in the Official Plan. The area is also subject to the Downtown Yonge Street Community Improvement Plan.

Taken together, these policy and implementation initiatives are intended to bring about the regeneration of Downtown Yonge Street as the major shopping and entertainment focus within the Greater Toronto Area. It is the stated policy of Council to "substantially increase the proportion and range of residents of the Greater Toronto Area and visitors who use Downtown Yonge Street". The initiatives are intended to rebuild the historic role that this portion of Yonge Street has played as a significant tourist, shopping and entertainment destination. The Toronto Eaton Centre, which is playing a significant part in the revitalization of the area, is itself the City's number one tourist destination, with over 50 million visitors per year, a quarter of whom are tourists.

The means through which the planning objectives are to be achieved include improving the amount and quality of street-related retail space, building a new public square and improving the quality and variety of building facades and signage.

The addition of large format, high quality signage in the area will create a stronger sense of place and visual identification, urban vitality and experience in a similar fashion and character as the signage in New York City's Times Square and in London, England's Piccadilly Circus. Improving the amenity of the street through such measures as signage will promote a sense of liveliness and safety for pedestrians and tourists alike.

Section 3 of the Official Plan contains policies which address the impact of built form on the public realm among other matters. Compliance with this policy is discussed in c) below.

b)Compatibility with area redevelopment:

The signage proposed with this application is consistent with the signage programme approved for the Phase I reconstruction of the Yonge Street facade of the Toronto Eaton Centre and will complete and unify the appearance of the Centre from Queen to Dundas Streets, responding to a long standing concern that the Centre should relate better to the Yonge Street environment.

Additional large format, high quality signage which is approved or proposed in the vicinity of the new public square includes the Atrium Media Tower and the enclosed parapet signage at the GAP building on the north west corner of Yonge and Dundas Streets, a "media and signage facade" proposed for the Metropolis development on the north east corner of Yonge and Dundas Streets and potential signage associated with Parcel C of the Yonge Dundas Redevelopment Project at Victoria and Dundas Streets.

All of these developments, in which a significant signage component is characteristic, will contribute to a critical mass and an exciting, experiential image, distinguishing the vicinity of Yonge and Dundas from other areas of the downtown and the City where the approach to signage is more intensively regulated.

c)Reconciling building presence, signage flexibility and impact

It is a clear design objective to create a dramatic building presence at the south west corner of Yonge and Dundas Streets through the introduction of the Eaton Centre media tower constructed above the proposed new entrance pavilion. The signage erected on the tower will create significant interest and serve as a landmark on the west edge of the new public square. In addition, the applicant has advised that the use of signage in this format is an emerging trend with rising standards of design and technical understanding and a desire for flexibility to respond to market demand. Recognizing that the stated aim of large format signage is to achieve high impact, visibility and market flexibility, staff have also discussed with the applicant design and regulatory approaches which achieve the following objectives relating to mitigating impact:

i) the desire to mitigate the impact of shadows which may be cast by the media tower on the public sidewalks north of Dundas Street during the early afternoon;

ii)the desirability of revealing the structural quality of the media tower, of providing a degree of transparency provided by the ribbed appearance of the tower and of providing measures which break down the mass of the tower;

iii)the desire to reduce potential conflicts with respect to vehicles and pedestrians and with existing or future residential uses in the vicinity; and

iv)the desire to harmonize signage with the architecture, conceptual design and the massing to achieve a high quality appearance.

Upon evaluating detailed shadow studies prepared by the applicant, reviewing several options for potential signage on the media tower, reviewing locations for existing and future residential development and reviewing potential traffic impact, the following measures are being recommended to achieve the objectives noted above:

i)restricted coverage of 25 percent of the outside columns (columns 1 and 7) and the top rail of the media tower and minimum average one metre separating distance between signs with the display area of the media tower;

ii)a requirement for 15 percent or 32 square metres of the upper portion of the media tower in the vicinity of columns 4 and 5, where no sign coverage will be permitted;

iii)minimum requirements to concentrate animated signage within the parapet signage band, corner feature sign and media tower and with application of animated signage limited to tri-vision elsewhere on the facade;

iv)defined areas for fascia signage to harmonize signage with the facade reconstruction; and

v)requirements for measures to ensure high quality signage mechanics and direct lighting towards signs.

There are two main areas of future potential conflict which staff have discussed with the applicant.

a)While it is recognized that some occupants of existing or future residential buildings to the east may experience increased visibility of signage at Yonge and Dundas, the pattern and extent of signage being considered is limited to buildings in the immediate proximity of Yonge Street and the Yonge and Dundas intersection. By focussing the new signage in and around Yonge and Dundas, the initiative is intended to take advantage of visibility primarily from approaches north and south on Yonge Street, east and west on Dundas Street and from the new public square. For example, the existing residential building to the east at Bond Street is approximately 220 metres away from the proposed media tower. This separation mitigates the impact of the signs and future buildings may serve to block views which now exist. Residential which is constructed on Yonge Street south of Dundas Street would face some of the new fascia signs, although the use of animation in this area would be limited to tri-vision.

b)A significant amount of animated signage may be erected in the vicinity of Yonge and Dundas including the proposed Eaton Centre Media Tower. It is recognized that this area is in a transition, where future large format signage is intended to be noticed and may cause distractions. Awareness of the changes by motorists and pedestrians may be gradual. While the proposed media tower is set back approximately 11 metres from the curb and further from the traffic signals on Dundas Street West, the City will monitor the situation with respect to pedestrian and vehicular safety, with specific regard to the hours of operation of the lighting, the intensity of illumination and animated signage.

The limits of the Yonge and Dundas sign precinct and the measures taken to mitigate impact, understanding that visibility is a key characteristic of this kind of signage, represents a reasonable approach within the City's current experience and an appropriate balance of objectives and interests for this important revitalization area. Nevertheless, through future by-law amendments, the City retains the right to place restrictions on the hours of operation of the lighting, the intensity of illumination and animated signage and the use of back and front lit fascia signs and within the media tower signage display area in order to address the potential future conflicts which may arise with respect to ensuring pedestrian and vehicle safety in the vicinity and potential future conflicts with respect to existing or future residential buildings in the vicinity.

It should be noted that the Pedestrian Level Wind Study submitted with the Site Plan Approval application associated with this sign application found that the existing wind conditions were generally unchanged and the wind climate for the proposed development is predicted to be acceptable for the anticipated pedestrian activities in the vicinity of the tower.

It should also be noted that as a condition of Site Plan Approval, the owner has agreed to a requirement that a third party consulting engineering firm be retained by the City and paid for by the owner to provide the City with assurances with respect to the quality, durability and maintainability of the physical materials used in the construction of the media tower.

Overall, it must be emphasized that the reduced regulatory approach at Yonge and Dundas and with this proposal is intended to clearly signal that this intersection and new development and related signage which surround it should be different, special and unlike any other downtown or main streets in the city. The rationale for this approach as expressed in this report is intended to prevent the initiative at Yonge and Dundas from becoming a precedent or justification for signage of a similar scale in less suitable locations.

d)Clarification between first and third party signage

In By-law 835-1998, certain fascia signs were permitted to contain first party signage, with the intent that they identify business, products or services associated with the Toronto Eaton Centre site, a large mixed-use property containing hundreds of stores and services. In order to clarify that, in this somewhat unique situation where some first party signage may be construed to be third party, it is proposed that the Phase II by-law recommended in this report provide an appropriate site specific definition which applies to the Phase II signage (Sign Nos. 10-16) to permit first party signage which is associated with business, products or services found on the entire site.

Implementation

Appendix A attached to this report contains an outline of the by-law amendment recommendations developed to permit the proposed signage and the regulatory measures outlined in this report.

Conclusions

The Phase II reconstruction of the exterior of the Toronto Eaton Centre between Trinity Way and Dundas Street will complete the rejuvenation of the face of a full city block on Yonge Street. The signage proposed in this application is complimentary to the signage approved in Phase I of the reconstruction and will be consistent with the nature of large format, high quality signage which has been approved and proposed in the immediate vicinity of the intersection of Yonge and Dundas. The proposal is consistent with the Official Plan policies in this area and contributes to the regeneration program now underway. Through various regulatory measures, steps have been taken to achieve a balance between the intended high impact of the signage and the visibility of the signage for existing and potential residential developments and vehicles and pedestrians moving through the area. The dynamic characteristics of these signs is an integral part of distinguishing this area and rebuilding the image of the area into one of prominence and excitement, unique in the Greater Toronto Area.

Contact:

Gregg Lintern

Community Planning, East Section, South District

Phone: 392-7363

Fax: 392-1330

Email:glintern@toronto.ca

Beate Bowron

Director, Community Planning, South District

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Appendix A

Draft By-law Recommendations - Toronto Eaton Centre Phase II Exterior Signage

A.Amendment to Metro By-law 118 for Sign No. 17 sign encroachment may be required

B.Amendment to former City of Toronto Municipal Code Ch. 297, Signs;

Definitions:

PARAPET SIGNAGE BAND DISPLAY AREA - The area on the surface of the parapet which is made available on the structure for the purpose of erecting or displaying signage.

MEDIA TOWER DISPLAY AREA - The area on the surface of the media tower which is made available on the structure for the purpose of erecting or displaying signage.

ON-SITE SIGNAGE PROJECTION AREA - On-site area delineated on plans where signage is permitted to project beyond the surface of the media tower.

MEDIA TOWER RESTRICTED COVER ZONE "A" - Column 1 and 7 and the top rail delineated on plans and elevation drawings where no more than 25 percent of the total aggregate area may be covered by signage otherwise permitted by this by-law at any time.

MEDIA TOWER RESTRICTED COVER ZONE "B" - Upper portion of the media tower delineated on plans and elevation drawings where 15 percent or 32 square metres of the total area must not be covered by signage at any time.

ANIMATED SIGNAGE - Illuminated signs which may contain animated copy, changeable copy, electronic message display copy, tri-vision panels, video screens which may feature animated graphics, real moving images and/or text utilizing televisions, computer video monitors, liquid crystal displays, light emitting diode displays, neon displays and similar displays.

CORNER ANIMATED SIGN AREA - A sign which may have a maximum size of 10 by 10 metres to be permitted within a defined area identified as Sign No. 23 at the corner of Yonge and Dundas Streets which may only be Animated Signage.

1.Schedules to show elevations of facade and media tower including plan drawings as necessary delineating fascia sign locations and areas as defined above, in plan and elevation as required (sign types and numbers as per maps attached to this report)

2.Permit 7 illuminated fascia signs - Sign Types 1,2,3 and 7 (Sign Nos. 1 -6 and 9)

a)back-lit or front-lit illumination

b)third party advertising permitted

3.Permit 1 illuminated fascia sign - Sign Type 4 (Sign Nos. 7 and 8)

a)back-lit or front-lit illumination

b)tri-vision permitted

c)third party advertising permitted

4.Permit 9 illuminated sign letter identification signs - Sign Types 5, 8 and 11 (Sign Nos. 24 -32)

a)back-lit illumination only

b)sign letters

c)tenant or building identification

d)for Sign Nos. 30 and 31, front-lit or back-lit illumination and fascia sign option permitted

5.Permit 7 illuminated fascia signs - Sign Type 6 (Sign Nos. 10 - 16)

a)back-lit illumination only

b)signage related to businesses, products and services provided on the entire Eaton Centre site

6.Permit 1 rotating illuminated fascia sign - Sign Type 9 (Sign No. 17)

a)back-lit or front-lit illumination

b)animated signage permitted

c)third party advertising permitted

7.Permit PARAPET SIGNAGE BAND DISPLAY AREA - Sign Types 10, 12, 13 and 15 (Sign Nos. 18 - 21)

a)animated signage permitted; 50% of display area required to be animated signage by July 1, 2003

b)back-lit illumination for fascia signs

c)third party advertising permitted

d)for tri-vision signs, front-lit permitted

8.Permit MEDIA TOWER DISPLAY AREA - Sign Type 11 (Sign No. 22) - MEDIA TOWER DISPLAY AREA, MEDIA TOWER RESTRICTED COVER ZONE "A", MEDIA TOWER RESTRICTED COVER ZONE "B", ON-SITE SIGNAGE PROJECTION AREA all as shown in plan and elevation as appropriate

a)third party advertising and animated signage permitted

b)not more than 10 percent of the MEDIA TOWER DISPLAY AREA has signs which have an area less than 15 square metres

c)back-lit illumination permitted; use of front-lit illumination limited to 50 % of display area with the exception that tri-vision and three dimensional signage where it occurs may be front-lit

d)minimum average separation distance between all signs of 1 metre

e)signs permitted to project beyond the surface of the media tower provided projection within the ON-SITE SIGNAGE PROJECTION AREA

f)static tension vinyl signs permitted; no flags, banners, pennants, cloth, other forms of plastic or similar flexible material permitted

g)all sign and media tower surfaces are sealed or covered in a manner that prevents the exposure of all mechanics, electronics, internal sign elements and minimizes corrosion

h)indirect signage illumination, where permitted, is located so as to direct light solely towards signs

10.Permit CORNER ANIMATED SIGN - (Sign No. 23)

a)permit animated signage only

b)maximum sign display area of 10 by 10 metres permitted within defined location on map; not permitted to be erected in such a way as to overlap with signs permitted within the PARAPET SIGNAGE BAND DISPLAY AREA

GENERAL PROVISIONS

a)All exposed sign framing shall be corrosion resistant.

b)Unless otherwise indicated, the signs or display areas shall not contain ANIMATED SIGNAGE or consist of flags or pennants.

c)Unless otherwise indicated or in the case of tri-vision, the signs are illuminated with internal illumination with the light source located within the sign or behind the copy.

d)All display areas shall contain sign copy at all times save and except Sign Nos. 1 - 9 and No. 22, subject to appropriate repair, maintenance and sign changing.

e)No sign shall be erected or displayed with resembles an official traffic signal, traffic sign or other traffic regulating device unless the sign is erected and displayed for the purpose of direction and is entirely on private property.