March 9, 2000

To: Etobicoke Community Council

From: Director, Community Planning, West District

Subject: Supplemental Report

File No. Z-2267

(Lakeshore-Queensway)

Purpose:

To respond to Etobicoke Community Council's request for a report with respect to certain matters that arose out of the February 16, 2000, Public Meeting on the subject application.

Financial Implications and Impact Statement:

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

Recommendations:

It is recommended that this report be received for information purposes.

Background:

The Etobicoke Community Council at its public meeting held on February 16, 2000, had before it a report dated January 7, 2000 respecting an application under the Planning Act and Cemeteries Act to permit a two-storey crematorium and columbarium on the northerly vacant portion of the existing Ontario Hospital Cemetery.

The Etobicoke Community Council deferred this matter to permit further community consultation prior to continuation of the public meeting on March 23, 2000, and requested the Director, Community Planning, West District, to submit a further report to include additional information on:

(1) an investigation of economic development issues;

(2) evidence of the actual property ownership, and boundaries of the grave sites;

(3) environmental and air quality issues; and

(4) a summary of traffic studies conducted.

This report is in response to Council's deferral.

Comments:

Economic Development Issues:

The main issues raised at the public meeting were with respect to the potential reduction in land values and stability of tenancy for industrial establishments located in the immediate vicinity of the proposed crematorium. At our request, staff of the Economic Development Division have consulted with several owners in the immediate area of the proposal, in an attempt to clarify this concern. They have commented that there certainly exists a perceived fear by the businesses in this area that the proposed use will result in a reduction in land values, result in tenant transience, and detract from industrial investment in the area.

In consultation with Economic Development staff, it is noted that there are numerous factors which relate to land value and tenant stability, but there would appear to be no empirical data which would conclusively indicate that such an adverse impact would result from the proposed crematorium use.

In this instance, the adoption of appropriate land use controls (set-backs, landscaping, buffer, etc.), which are required as conditions to the Planning staff report, should serve to minimize potential impacts on the abutting industrial area. Notwithstanding the foregoing, and in responding to the concerns of the community, Economic Development staff have noted that it may be appropriate to retain an expert in this matter to conclusively refute or validate the current negative perception in the industrial community with respect to land use values and tenant stability.

Evidence of Property Ownership and Boundaries of the Grave Sites:

We have been advised by the applicants' solicitor that the applicant (1385521 Ontario Limited) is the beneficial owner under an agreement of purchase and sale with the Ontario government to purchase the Ontario Hospital Cemetery lands, including the easterly 25 foot (7.5 metre) strip of land recently incorporated into the application to facilitate better access to the subject property. It is understood that while they are purchasing the cemetery, the applicant does not retain burial rights to the existing plots in the cemetery, which will continue to reside with the Province. At the public meeting, an issue was raised by the solicitor for the abutting property (Sun Life Canada) with respect to the validity of the ownership status of the most easterly 25 foot (7.5 metre) strip noted above and proposed as access into the site.

In this regard, staff are in receipt of a letter of authorization, and updated survey (Attachment No. 1) from the Ontario Realty Corporation, indicating their ownership and authorization to proceed with the application, which is in accordance with all City requirements.

Etobicoke Community Council has also requested that the issue of the boundaries of the existing grave plots be addressed. In this regard, the applicant has provided staff with a survey dated June 9, 1998, (Holding and Jones Limited) which was prepared for the applicant, for the purposes of identifying, all the burial plots recorded in the cemetery record book for the Ontario Hospital Cemetery. The burial plot number in the cemetery record book correspond with the burial plot numbers on the survey. (Attachment No. 2) Staff note that there are no recorded burials on the northerly portion of the site, where the crematorium is proposed, nor are we in receipt of any evidence to the contrary.

As a condition to approval of the staff report, an archaeological assessment is required to ascertain if there are any unidentified burials on the northerly portion of the site. Should any burials in the northern portion be discovered, the disposition of these burials would be subject to the Provision of the Cemetery Act.

Environmental and Air Quality Issues:

A further community meeting was held on February 29, 2000, to address air quality issues which were previously raised at the public meeting. The District Engineer from the Toronto District (Central Region) of the Ministry of Environment and Dr. Donald Cole, (Occupational Health) from L.A.M.P. (Lakeshore Area Multi-Service Project) were in attendance to respond to community concerns. The main issues which continue to be raised include the potential for off-site air quality/odour impacts which could effect the health of local residents and businesses and the potential for faulty operation or breakdown of equipment or human error, resulting in unforeseen health impacts.

In this regard, the representative from the Ministry of Environment noted that the approval to construct a crematorium would be subject to the issuance of a Certificate of Approval by the Ministry of the Environment which would specify compliance with air quality criteria, and operational safeguards to minimize impacts as a result of human or operational error. The City does not have the expertise to address these matters, and the approval of a Certificate of Approval is a condition to the Planning staff report.

Another major concern of the community relates to the possible health impacts of mercury released into the atmosphere as a by-product of the cremation process. It was acknowledged that although there would undoubtedly be some impact, as there would be with any substance released into the atmosphere, the applicant's facility would be subject to the established air quality criteria, which the Ministry of the Environment has deemed to be acceptable as part of the Certificate of Approval process.

Adequacy of Transportation Impact Study:

Transportation staff have reviewed the transportation impact study submitted by the applicant and concur with both the consultant's methodology and conclusions. The study, prepared by Read Voorhees and Associates (dated December 14, 1999) was based upon crematorium operating characteristics accepted by the Ontario Municipal Board in conjunction with the applicant's proposal to construct a similar facility in the City of Vaughan.

The site can accommodate sufficient parking in the event that proposed gathering rooms/chapels are in use simultaneously, while also accommodating typical parking demand associated with visitations to columbarium niches. The applicant has indicated that simultaneous use of both chapels would not be normal practice. In the event of unexpected extraordinarily large gatherings, additional vehicle parking could be accommodated along the cemetery access road.

Transportation Planning staff have also considered the combined impact of the operation of the crematorium/ columbarium and other major development proposals in the vicinity of the subject site. Development proposals that were considered include: the approved multi-screen Cineplex Theatre to be constructed at the southwest corner of Islington Avenue and The Queensway; and the proposed, but yet to be approved, IKEA store on the south side of The Queensway, midway between Kipling Avenue and the East Mall. Staff have advised that several road improvements will be required in conjunction with these proposed developments. The peak traffic generating periods of these proposed developments do not coincide with the peak operating period of the crematorium/columbarium. Similarly, as noted earlier, the peak operating period of the crematorium/columbarium does not coincide with regular peak weekday morning and afternoon travel periods. The traffic impact of the proposed crematorium/columnbarium will not be discernible during any of the above peak periods.

Contact:

Michael McCart, Senior Planner

Community Planning, West District

Tel.: (416) 394-8228; Fax: (416) 394-6063

E-mail: mmcart@toronto.ca

(A copy of each Attachment Nos. 1 and 2, referred to in the foregoing report, was forwarded to all Members of Council with the agenda for the Etobicoke Community Council meeting of March 23, 2000, and a copy of each is on file in the office of the City Clerk.)