STAFF REPORT

November 19, 1999

To: Toronto Community Council

From: Acting Commissioner of Urban Planning and Development Services

Subject: Preliminary Reports on Rezoning Applications for the former Inglis Lands known as Portions of 14 and 20 Strachan Avenue, 121, 128 and 132 Liberty Street; Portions of 14 and 20 Strachan Avenue, 45 and 132R East Liberty Street; and Portions of 132R East Liberty Street; to construct large format retailing outlets and future residential uses - Application Nos. 199028, 199029, 199030, 199031 and 199032

(Trinity-Niagara)

Purpose:

To introduce five rezoning proposals to permit retail stores, surface parking, and future residential uses on the lands formerly occupied by the Inglis manufacturing company, generally south of King Street West and west of Strachan Avenue.

Financial Implications and Impact Statement:

There are no financial implications resulting from the adoption of this report.

Recommendations:

It is recommended that:

(1) The applicant be advised of the need to apply for an Official Plan amendment for each rezoning application filed.

(2) The applicant be requested to prepare any studies requested by the Commissioner of Works and Emergency Services, to evaluate the potential traffic, parking and servicing impacts of the applications.

(3) The applicant be requested to submit a study analyzing the impact of the proposed uses on the economic viability and planned function of the shopping districts in the area.

(4) Subject to the receipt of the above noted Official Plan amendment applications, reports and a revised site plan which responds to the concerns outlined in this report, that I be requested to hold a public meeting in the community to discuss the application and to notify owners and residents within 300 metres of the site and the Ward Councillors.

Background:

Site

The lands included in the five applications lie between the Canadian National Railway "Milton" and "Lakeshore" lines, west of Strachan Avenue, south of King Street West. They are adjoined to the south-west and west by the industrial properties fronting on Hanna Avenue. In their current form, the applications exclude two properties, (the Latner and Engel sites), which are centrally situated on the Inglis lands.

The site is generally vacant except for an historic Chapel. The buildings associated with the Inglis plant were demolished several years ago. The site is used for vehicle parking for events at Exhibition Place and film industry vehicles, as well as a holding area for towed vehicles.

The Proposals

Access to the site from the east is currently from Strachan Avenue. Access to the west is provided through a narrow lane extending east from the termination of Liberty Street between the Irwin Toy building and No. 37 Hanna Avenue. Demolition of a small portion of the north end of the Irwin Toy building will allow for a secondary access point to Hanna Avenue. The applicant proposes a new "main street" which will connect Liberty Street to Strachan Avenue at Ordinance Street, and a number of internal streets and driveways which will subdivide the property into smaller blocks.

There are five rezoning applications making up the submission. Four of the applications are for retail uses ranging in size from 1,300 m2 (14,000 ft2) to 9,011 m2 (97,000 ft2). They include a Canadian Tire store of 7,897 m2 (85,000 ft2) plus a large garden centre, and a food store of 4,646.8 m2 (50,000 ft2). The larger buildings are proposed to be adjacent to the CN tracks along the northern property boundary. Smaller retail buildings are proposed adjacent to the Liberty Street extension. Surface parking lots seem to occupy about half of the area included in the retail applications.

The fifth application proposes two residential blocks adjacent to Strachan Avenue; however, no detailed information has been submitted yet in support of this application.

Although the applicant has filed individual applications, the site is clearly being treated as one entity and staff are assessing the proposals on a comprehensive basis.

Reasons for the Application

The applicant has applied for amendments to the Zoning By-law as the proposed uses are not permitted under the existing industrial zoning.

Comments:

Official Plan

The property is part of the Garrison Common North Area, which was the subject of an Official Plan Part II Study, implemented through amendments to the Official Plan and Zoning By-law in 1995. This planning initiative attempted to build on the successes which had been achieved in the surrounding neighbourhood.

The Liberty Area, which extends west of the site to Dufferin Street, has seen a rapid transformation from primary industries into technology based businesses oriented to the media, advertising and film production. The area also includes a number of restaurants and galleries, and limited live/work space. The Massey-Harris lands, located on the north side of the CN railway tracks bordering the north edge of the site, are currently being developed for residential uses with ancillary retail uses along the King Street West frontage.

In recognition of this context and to encourage a truly mixed-use community, the Part II Plan designated the Inglis lands as General Use Area-A. This designation permits a range of industrial, commercial and residential uses, subject to requirements related to urban structure and built form. The Plan identifies the potential for live/work uses, building on the diverse character of the Liberty Area and the Massey-Harris developments. It also contains policies intended to strengthen and protect the existing and emerging neighbourhood commercial strips.

The proposed rezoning applications do not seem to reflect the planning vision described in the Part II Plan. The proposed Canadian Tire store may serve the needs of the local residents and business community, but may, in fact, have a very large catchment area.

Currently the application for residential uses offers no information as to the type or form of these uses. Staff would prefer that these blocks provide for a more diverse mix of uses in keeping with the overall planning philosophy for this area.

Given the divergence from the objectives of the recently approved Part II Plan which contemplated a diverse mix of activities, and the cumulative magnitude of the proposals, I am recommending the applicant be requested to file corresponding Official Plan amendments for each of the rezoning applications. Until such time as these applications and supporting materials are received, the current applications cannot be considered complete.

Site Plan and Built Form Matters

There are a numerous issues surrounding the submitted site plan. The Part II Plan contains policies that discourage the use of private motor vehicles and encourage pedestrian connections. However, the site plan appears to be laid out to facilitate motor vehicle movement and parking, while offering little support for pedestrian activity.

The proposed block pattern is oriented diagonally along the "Diagonal Way" which runs in front of the large retail operations shown at the northern part of the site, and along the new "main street" connecting Liberty Street to Strachan Avenue. This proposed block pattern is entirely out of character with the surrounding neighbourhoods and needs to be rethought.

Toronto's typical grid street pattern existing in the neighbourhoods surrounding the site needs to be respected. A revised site plan should ackowledge this pattern, and recognize potential north-south view corridors.

The Liberty Street alignment would locate a substantial portion of the main access road along the south property line, adjacent to existing industrial buildings fronting on Hanna Avenue. This alignment limits the potential for street-related retail uses on both sides of the new "main street" and appears to limit access to the road from the south.

The proposed site layout and the scale of some of the proposed buildings do not fit into the surrounding area. The applications place the largest buildings adjacent to the rail line and locate the majority of the parking areas adjacent to internal streets. In its current form, the applications do not reflect the kind of street-related activity evident in the Liberty Area to the west, or in the residential areas to the north.

The applications include some retailing along the Liberty Street extension. The current layout seems to have many similarities with suburban, auto-oriented retailing since buildings appear isolated by expansive areas of surface parking with perimeter landscaping. The applicant has suggested that these buildings will more closely resemble typical Toronto main streets buildings.

Further detail is required to assess the adequacy of the proposed landscaping treatment within the site.

The urban form shown in the current site plan is not consistent with the surrounding neighbourhood, or the Part II Plan which anticipated the creation of regular streets and blocks typical of the larger area. As part of the continuing discussions with the applicant, a dialogue should occur about the internal layout of the site, and the type of uses which may be appropriate for these parcels. Efforts will focus on the need to ensure that the form of the buildings assists in creating an urban streetscape by defining block edges with taller buildings, and providing for a mix of street related activities.

Economic Activity

The Part II Plan contains several policies geared to strengthening the retail strips along the major streets in the area. It also states that new retail activity should cater to the needs of the local residents and business community. The proposed uses appear to diverge from these objectives, and the application requires further analysis to consider potential impacts on the economic viability and planned function of the existing retail strips. I am therefore recommending that the applicant be requested to prepare a study to evaluate these impacts.

In the recent Ontario Municipal Board decision on the application for the Home Depot store on the Toronto waterfront, the Board indicated the importance of the City "remaining vigilant in their protection" of healthy retail strips along main streets and recognized that they are "essential to the stability and vitality of the residential neighbourhoods" where they are located. This statement reflects the policies expressed in the Part II Plan for Garrison Common.

Phasing

The applicant has indicated that the proposed site plan will evolve over a period of several years. The proposed uses and the internal layout are intended to provide a framework for additional retailing or other activity as the area becomes better established. I am very concerned that the site could end up being developed exclusively for large format retail uses in single-storey buildings. The site should accommodate a genuine mix of built form and uses including retail, employment, residential and public activities.

The applicant has suggested that Letters of Credit could be secured by the City to provide for the creation of these additional uses. This alternative and other possibilities should be considered as part of the further discussions of these applications and the Official Plan amendments requested.

Transportation Issues

The extension of Liberty Street is shown as proceeding between the south side of the Irwin Toy building and the building at number 37 Hanna Avenue. The applicant has indicated that the face-to-face distance between these buildings is approximately 16.5 metres. Following some discussions it is now proposed that two vehicle lanes and a sidewalk may be accommodated on an interim basis. Widening of the right-of-way to accommodate additional lanes, would require demolition of one of the adjacent buildings.

Similarly, access is proposed to the north of the Irwin Toy building by way of a narrow, short portion of Hanna Avenue, which leads west to Atlantic Avenue. With the continued growth of the Liberty area, the intersection of Atlantic Avenue and King Street West may be required to accommodate a substantial growth in traffic volumes. The configuration of this intersection raises other concerns including the slope of Hanna Avenue as it intersects King Street West, and the adequacy of site lines to the east for turning traffic given the proximity of the rail underpass.

The Liberty Area is rapidly evolving into a 24 hour neighbourhood. On any given evening, film production can be found on many of the streets. Local galleries and restaurants bring people into the area during regular business hours and on weekends. At a recent meeting of the Parkdale/Liberty Economic Development Committee local accessibility was cited as a potential limiting factor in expanding and attracting additional businesses. Many of the existing businesses have difficulty in securing adequate, convenient parking. The effects of the additional traffic generated by the proposals on an area already experiencing traffic issues require further consideration.

Staff have not had the opportunity to assess other potential impacts of the proposals with respect to the level of the proposed parking; the impact on existing and future traffic flows; the adequacy of existing and proposed road widths; potential impacts on transit including the operations of the King Street West streetcar and Go Transit; or the need for additional municipal traffic infrastructure such as traffic signals. The potential impact on municipal servicing needs will also have to be considered as part of the further consideration of the applications.

In order to assist in the completion of this review, I am recommending that the applicant be requested to provide additional studies, to the satisfaction of the Commissioner of Works and Emergency Services, to address these issues.

Rail Relocation and Related Issues

The potential relocation of the CN tracks along the north edge of the site was considered as part of the Part II Plan process. The intent of relocating the tracks was to assist in the integration of the Inglis lands into the fabric of the neighbourhood emerging on the Massey Harris lands to the north of the tracks. The concept involved relocating the tracks to an alignment generally along the south side of the site. The former City of Toronto Council endorsed the relocation project, but no funds have ever been allocated to implement it. The proposed site plan would effectively preclude the relocation of the rail tracks. Therefore, Council will be required to reconsider its previous position as part of the processing of the applications.

The current site plan does not appear to provide for a setback from the adjacent railway lines. It has been the practice of CN to request a 15 metre setback (or equivalent) on commercial/industrial sites, and 30 metres (or equivalent) on residential sites. Reconfiguration of the site plan may assist in resolving this concern, however further evaluation is needed.

The applicant has schematically shown a potential site for an additional GO station just east of King Street West and Atlantic Avenue. The application provides enhanced pedestrian connections between this new station and the area to the south and west. Retail uses are also shown adjacent to the station location. The matter of expanded GO service along this route, including direct service to Lester Pearson International Airport, is under consideration. However, it is unclear whether a commitment to the new station can be made as part of Council's consideration of these proposals.

Front Street Extension

The proposed applications also raise issues about the future of the Front Street extension. The currently proposed alignment of the Front Street extension would occupy a substantial portion of the area shown as Application 5, Residential-Phase 2 on Map 2 of this report. Completion of the Front Street extension remains a high priority of City Council in the continued development of an overall plan for the waterfront. The requested traffic analysis should include consideration of the impact of the extension of Front Street on the proposed development.

Heritage

The application does not indicate specific plans for the historic Chapel located on the site although the applicant has indicated that the structure will be retained and may be used for retail purposes. This building was constructed in 1877, to serve the Central Prison which occupied the majority of the site before WW II. The preservation of this building and options for the future use of the structure should be refined as part of the application process with the participation of staff from Heritage Toronto.

Public Amenities

The current proposal indicates some public amentities including the possible new GO Transit station. As part of the processing of the current applications and the recommended Official Plan amendments, further consideration should be given to possible agreements to secure the public amentities proposed in the applications and the public needs anticipated as a result of the proposed developments.

Lands not Forming Part of the Application

There are two properties internal to the site which are not part of the current applications. These properties are, in effect, landlocked by the proposed applications since there is no direct access to a public road. These sites are referred to as Latner and Engel on the site plan (see Map 2). The applicant has informed staff that they are continuing discussions with these owners in an effort to incorporate the properties into an overall proposal.

Conclusions:

These development proposals raise numerous issues that must be resolved before the applications can be processed further. The need for Official Plan amendments and a number of additional reports, and further detailed information has been identified. These are required before technical consideration of the proposal can begin. In particular, the current, very preliminary and somewhat incomplete site plan needs substantial revision.

However, subject to the receipt of the Official Plan amendments, acceptable studies which address the concerns outlined in this report, and a revised site plan which responds to the issues raised, I am recommending that a public meeting be held as the next step in the review of these applications.

Contact:

Rollin Stanley

Senior Planner

Telephone: 392-0424

Fax: 392-1330

E-Mail: rstanley@toronto.ca

Beate Bowron

Director, Community Planning, South District

(p:\1999\ug\uds\pln\to992036.pln) - smc

199028, 199029, 199030, 199031 and 199032

List of Attachments:

Application Data Sheets

Maps (1-3)

APPLICATION DATA SHEET

Confirmed Municipal Address: Portions of 14, 20 Strachan Avenue, 121, 128, 132R East Liberty Street.

PLANNING CONTROLS (For verification refer to Chief Building Official)

Official Plan Designation:		Site Specific Provision:	No
Zoning District:	I3 D3	Historical Status:	20 Strachan Ave. designated
Height Limit (m):	18.0	Site Plan Control:	Yes

PROJECT INFORMATION

Site Area:	33208.0 m2		Height:	Storeys:
Frontage:				Metres:
Depth:
				Indoor		Outdoor
Ground Floor:			Parking Spaces:			399
Residential GFA:			Loading Docks:
Non-Residential GFA:	9987.0 m2		(number, type)
Total GFA:	9987.0 m2

APPLICATION DATA SHEET

Confirmed Municipal Address: Portions of 121, 132R East Liberty Street.

PLANNING CONTROLS (For verification refer to Chief Building Official)

Official Plan Designation:		Site Specific Provision:	No
Zoning District:	I3 D3	Historical Status:	No
Height Limit (m):	18.0	Site Plan Control:	Yes

PROJECT INFORMATION

Site Area:	23836.0 m2		Height:	Storeys:
Frontage:				Metres:
Depth:
				Indoor		Outdoor
Ground Floor:			Parking Spaces:			220
Residential GFA:			Loading Docks:
Non-Residential GFA:	5110.0 m2		(number, type)
Total GFA:	5110.0 m2

APPLICATION DATA SHEET

Confirmed Municipal Address: Portions of 121, 132R East Liberty Street.

PLANNING CONTROLS (For verification refer to Chief Building Official)

Official Plan Designation:		Site Specific Provision:	No
Zoning District:	I3 D3	Historical Status:	No
Height Limit (m):	18.0	Site Plan Control:	Yes

PROJECT INFORMATION

Site Area:	8928.0 m2		Height:	Storeys:
Frontage:				Metres:
Depth:
				Indoor		Outdoor
Ground Floor:			Parking Spaces:			139
Residential GFA:			Loading Docks:
Non-Residential GFA:	2462.0 m2		(number, type)
Total GFA:	2462.0 m2

APPLICATION DATA SHEET

Confirmed Municipal Address: Portions of 132R East Liberty Street.

PLANNING CONTROLS (For verification refer to Chief Building Official)

Official Plan Designation:		Site Specific Provision:	No
Zoning District:	I3 D3	Historical Status:	No
Height Limit (m):	18.0	Site Plan Control:	Yes

PROJECT INFORMATION

Site Area:	9594.0 m2		Height:	Storeys:
Frontage:				Metres:
Depth:
				Indoor		Outdoor
Ground Floor:			Parking Spaces:			115
Residential GFA:			Loading Docks:
Non-Residential GFA:			(number, type)
Total GFA:

APPLICATION DATA SHEET

Confirmed Municipal Address: Portions of 14, 20 Strachan Ave., 45, 132R East Liberty Street.

PLANNING CONTROLS (For verification refer to Chief Building Official)

Official Plan Designation:		Site Specific Provision:	No
Zoning District:	I3 D3	Historical Status:	20 Strachan Ave. designated
Height Limit (m):	18.0	Site Plan Control:	Yes

PROJECT INFORMATION

Site Area:	56180.0 m2		Height:	Storeys:
Frontage:				Metres:
Depth:
				Indoor		Outdoor
Ground Floor:			Parking Spaces:
Residential GFA:	168540.0 m2		Loading Docks:
Non-Residential GFA:			(number, type)
Total GFA:	168540.0 m2