March 6, 2000
To: Scarborough Community Council
From: Ted Tyndorf
Director of Community Planning, East District
Subject: Official Plan Amendment Application SC-P1997009
Zoning By-law Amendment Application SC-Z1997027
The Omni at the City Centre Inc., Omni South Inc., and Metropolitan Condominium Corporation No. 1133
Northeast corners of Brimley Road and Omni Drive, and
Brimley Road and Ellesmere Road
Part of Blocks A and B, Registered Plan M-1410
City Centre
Scarborough City Centre
Purpose:
The applications propose to amend the Official Plan and Zoning By-law for the lands located at the northeast corners of
Brimley Road and Omni Drive, and Brimley Road and Ellesmere Road, to provide for City Centre Residential Uses to a
maximum density of 501 dwelling units per hectare (200 units per acre) or a total of 1,300 dwelling units. The current City
Centre Uses Official Plan designation provides for City Centre Residential Uses to a maximum density of 366 dwelling
units per hectare (146 units per acre) or a total of 1080 dwelling units. The proposed increase of 220 dwelling units would
be applied to the vacant lands on the northeast corner of Brimley Road and Omni Drive (north block), on which two
residential apartment buildings are proposed, 28 and 30 storeys in height, with a total of 640 dwelling units. The overall
height restriction for the residential apartment buildings is not proposed to be changed and will remain at a maximum of 85
metres (279 feet).
Financial Implications and Impact Statement:
None.
Recommendations:
It is recommended that:
A. OFFICIAL PLAN
That Council amend the City Centre Secondary Plan with respect to the lands at the northeast corners of Brimley Road and
Omni Drive, and Brimley Road and Ellesmere Road by:
1. Deleting the following from Numbered Policy 1:
"Only City Centre Residential Uses shall be permitted to a maximum density of 366 dwelling units per hectare."
"Amendments to the Zoning Bylaw to permit increased densities and height of development may require the provision of
facilities, services or matters to improve the landscaping, pedestrian walkways, pedestrian grade separations,
transportation, and/or community facilities available to City Centre and area residents pursuant to Section 37 of the
Planning Act." and replacing it with the following:
1.1 Only City Centre Residential Uses shall be permitted to a maximum density of 501 dwelling units per hectare.
1.2 Amendments to the Zoning By-law to permit increased density or heights of development may require a financial
contribution to the City's Capital Revolving Fund for Affordable Housing or may require owners of land to enter into
agreements with the City to provide for affordable housing units, and may require the provision of facilities, services or
matters to improve the landscaping, pedestrian, transportation, and/or community facilities available to City Centre and
area residents and employees, pursuant to Section 37 of the Planning Act, R.S.O. 1990.
B. ZONING BY-LAW
That Council amend the Employment Districts Zoning By-law No. 24982 (Progress), as amended, with respect to the
lands located at the northeast corner of Brimley Road and Omni Drive, being Part of Block B, Registered Plan M-1410, as
follows:
1. Delete the existing Performance Standard which permits a maximum of 420 dwelling units, and replace it with a new
Performance Standard which permits a maximum of 640 dwelling units.
2. Replace the current parking provision of a minimum of 1.4 parking spaces per dwelling unit with the following:
Minimum of 1.2 parking spaces per dwelling unit including a minimum of 1 parking space per dwelling unit for residents
and a minimum of 0.2 parking spaces per dwelling unit for visitors.
3. Retain all other existing Performance Standards which currently apply to the subject lands.
D. MATTERS TO BE PROVIDED UNDER SECTION 37 OF THE PLANNING ACT, R.S.O 1990
That Council direct planning staff to report further to Scarborough Community Council on the outcome of Section 37
negotiations, once a contribution has been agreed to by the applicant, prior to introducing the Official Plan and Zoning
By-law amendments for enactment by Council.
E. MISCELLANEOUS
That Council authorize any unsubstantive technical, stylistic or format changes to the Official Plan and Zoning By-law
Amendments as may be required to give effect to this resolution.
Background:
The subject lands consist of two blocks totalling 2.6 hectares (6.5 acres). The south block has a site area of 1.65 hectares
(4.1 acres) and contains a 26 storey, 204 unit residential apartment building and 42 casitas situated at the southeast corner
of Brimley Road and Omni Drive (115 Omni Drive). A 22 storey, 277-unit residential apartment building is currently
under construction to the immediate east of the first phase. The north block has a site area of 0.95 hectares (2.35 acres) and
is currently vacant. To the immediate north is the Scarborough SRT line with a station located at Scarborough Town
Centre. On the east side and south side of Borough Drive are the Bell offices and the City Centre Woodlot respectively. On
the west side of Brimley Road are industrial uses and a bank. To the south of Ellesmere Road lies the Bendale Community.
The development of the subject lands for residential uses was specifically targeted back in 1988 when Scarborough
Council redesignated the lands to City Centre Uses providing for a maximum residential density of 366 dwelling units per
hectare (146 units per acre) or 1080 dwelling units.
The lands were zoned City Centre Residential (CCR) permitting a maximum of 660 and 420 dwelling units on the south
and north blocks respectively. A Section 37 agreement, pursuant to the Planning Act, between the applicant and City,
secured several community improvements in exchange for the density on the subject lands.
The applicant (Tridel) advises that the buildings, as designed in 1988, no longer respond to the market demand today for
smaller sized dwelling units. The applicant proposes to develop the currently vacant north block with smaller sized units,
but is also requesting an increase of 220 dwelling units over the number currently permitted. Despite the reduced unit size,
the proposed gross floor area and massing on the north block is larger than originally proposed due to the increase in total
units.
The original design concept for the north block consisted of one 30-storey slab type residential apartment building running
along Brimley Road with street related townhouses. The current proposal consists of two residential apartment buildings,
one a slab type 30-storey building and the other a point block 28-storey tower, and street related townhouses to create a
pedestrian friendly street edge.
When this site was dealt with by Council in 1988, the site area was 2.95 hectares (7.3 acres). The approved residential
density of 366 units per hectare (146 units per acre) has effectively capped the site at 1,080 units. Following this original
approval, lands have been dedicated to the City for the construction of Omni Drive. The 'net' density (excluding Omni
Drive) is now 417 units per hectare (167 units per acre).
The proposal for an additional 220 units, would result in a density of 501 units per hectare (200 units per acre) over the
entire subject lands. All of the proposed additional 220 units would be located on the north block. As a result, the north
block would have a density of 677 units per hectare (271 units per acre).
Comments:
Community Meeting
Planning staff hosted a Community Information Meeting the evening of June 29, 1999 at Scarborough Civic Centre. Local
Councillors Lorenzo Berardinetti and Brad Duguid attended the meeting as well as four residents. Issues raised included
concerns with the current wind conditions in the vicinity of the existing apartment building at 115 Omni Drive (Phase 1),
as well as this building's appearance. Both these issues are addressed in this report below.
In response to the community meeting notice, Walshire Properties Ltd, owners of the property at 1340 Ellesmere Road,
wrote to the City advising of their support for the proposal.
Design Concept Plan
Following the submission of a Site Plan Control application (SC-S19990090), planning staff worked with the applicant to
achieve a high quality design concept for the subject lands, consistent with the City Centre Design objectives. The result
illustrated on Figures 1, 3, 4 and 5 is pedestrian oriented development which will significantly improve the streetscape and
establish an urban character for this area of the City Centre. The proposed two residential buildings have been designed to
provide an attractive addition to the Scarborough City Centre skyline. The roof design creates a strong positive image for
the overall Omni development and the variation in the facade treatment results in aesthetically pleasing towers. The two
residential towers rest upon a podium base which contains outdoor landscaped amenity areas on the roof and common
indoor amenity areas and parking within the podium. Street-related townhouses surround the podium along Brimley Road,
Omni Drive, and Borough Drive, animating these streets by creating a comfortable pedestrian-friendly environment with
eyes on the street. Significant landscaping around the perimeter of the project and on the public boulevards, as well as
construction of new public sidewalks along Omni Drive and Borough Drive, will contribute to the greening and liveliness
of these streets. Criticism of the Phase I Omni tower design was taken into account when designing these buildings. The
roof and facade design, and the street related townhouses at the pedestrian level will improve the result of this phase of
development.
Pedestrian Wind Study
Rowan Williams Davies & Irwin (RWDI) conducted a Pedestrian Wind Study for the proposal to assess the wind
environment around the proposed buildings in terms of pedestrian comfort and safety. A 1:500 scale model of the project
was tested at 56 locations along the perimeter of the project, on the landscaped podium, and adjacent to the property. The
conclusions of the study suggest that the majority of locations tested met the comfort criteria for pedestrian use in both the
summer and winter seasons. Two locations on Omni Drive and three locations on the project's podium terrace failed the
criteria for pedestrian safety. Wind control measures are typically required at locations that fail the Safety Category. The
applicant's architect and landscape architect are currently reviewing possible refinements to the building design and
landscaping arrangements in order to improve wind conditions at the identified problem test locations. Prior to final site
plan control approval, the applicant shall re-test the detailed project design to ensure the locations which failed the Safety
Category are improved to an acceptable wind speed level.
Transportation
Planning staff concur with the conclusions of the traffic impact study prepared by DS-Lea Associates which concludes that
the resulting impacts associated with the increase in density are minor and can be accommodated by the existing
surrounding road network. The study concludes that the project will generate a total of 177 two-way vehicle trips during
the PM peak hour, which includes 60 two-way vehicle trips due to the net increase in density (i.e. increase in unit count by
220 units). The proximity of public transit in the City Centre and the complementary nature of residential development to
employment uses established in the City Centre also promotes non-auto travel and the internalization of traffic.
Parking
The applicant is proposing a refinement of the parking provisions which currently apply to the subject lands, by reducing
the minimum parking standard from 1.4 parking spaces per unit to 1.3 spaces per unit. The proportion of the minimum
parking standard required for visitor parking will remain unchanged at 0.2 parking spaces per dwelling unit. This is in
keeping with the applicant's parking demand experience in existing residential projects in the City Centre. Given that the
Scarborough City Centre SRT Station is within walking distance, planning staff are proposing the refinement in the
parking standard be fixed at 1.2 parking spaces per dwelling unit, including 0.2 parking spaces per dwelling unit for visitor
parking, to recognize the subject land's excellent public transit accessibility attributes. This is consistent with the City
Centre Official Plan policies which stipulate that 'the supply of parking for all City Centre Uses shall be controlled to
support a high level of transit usage and avoid unacceptable levels of congestion on the City Centre road system.' The
recommended refinement will also enable flexibility to improve site design when detailed plans are prepared for final site
plan control approval.
Hydrogeological/Soils study
VA Geotech Ltd. prepared a Phase I Environmental Site Assessment and Phase 2 Testing of the subject site which
concluded that based on the test results, soils at the site meet the requirements for residential land use, and there appears to
be no environmental concerns for the subject property. The Geotechnical Investigation concludes that the current stabilised
ground water table at the subject site is apparently lower than the proposed slab on grade elevation. Buildings staff have
reviewed the VA Geotech Ltd. reports and concur with the conclusions. The north garage wall of the project is close to the
SRT. Further engineering analysis will be undertaken by the applicant in consultation with TTC staff prior to final site plan
control approval to ensure adequate precautions are implemented into the design of the project foundations to mitigate
levels of vibrations transmitted to the buildings by the SRT.
Agency Comments
Staff from the Toronto Public School Board advise that there is capacity in the local schools south of Ellesmere Road to
accommodate school children emanating from this project. There has been no formal response from the Toronto Catholic
District School Board to date, however discussions with Board staff indicate that there may be no capacity available in
nearby Catholic Schools for school children emanating from this project. Planning staff are continuing discussions with
Catholic Board staff regarding school capacity needs in the City Centre. Plans for accommodating the students emanating
from this project can be developed by the School Boards in concert with the phasing of this project.
The Works and Emergency Services Department advises that servicing is available to accommodate the increase in
dwelling units.
The Toronto Transit Commission (TTC) responded with comments advising the applicant that it is possible for noise,
vibration and electro-magnetic fields to be transmitted from the adjacent transit operations into any structure constructed
adjacent to the transit facilities or structures. The owner should inform prospective purchasers and lessees, through a clause
in the purchase or rental agreements, of the potential for noise, vibration and/or electro-magnetic fields and the fact that the
TTC accepts no responsibility for any such effects. Planning staff met with TTC staff and the applicant to discuss
attenuation measures which could be applied to the project so that the levels of noise, vibration and magnetic fields that
could be transmitted to the subject development will be at the lowest levels technically feasible. The applicant advises that
the wall and window construction of the project will meet the indoor sound level guidelines of the Ministry of
Environment. Jade Acoustics Inc. has prepared an Environmental Noise Analysis which concludes that transportation
noise, including the SRT can be mitigated with the construction design of the project. Further engineering analysis with
regard to attenuation measures to be implemented into the construction design of the project will be undertaken by the
applicant in consultation with TTC staff prior to final site plan control approval. If a warning clause registered on title
advising of the potential for noise, vibration and electro-magnetic fields continues to be necessary following the
engineering results, it can be applied as a condition of Site Plan Control approval and Draft Plan of Condominium
approval.
Section 37 Contribution
In July 1998, City Council directed that a fund for affordable housing be established to provide financial support to projects
that demonstrate the City's role in facilitating the creation of affordable housing. City Council approved the establishment
of the Capital Revolving Fund for Affordable Housing in February 1999. At its May 11 and 12, 1999 meeting when
considering the recommendations of the Mayor's Homelessness Action Task Force Final Report (the Golden Report),
Council adopted a number of recommendations, one of which was a direction to City staff to secure cash contributions to
the Capital Revolving Fund through the use of Section 37 of the Planning Act on a City-wide basis.
Given the proposed increase in residential density, a Section 37 contribution has been requested from the applicant. The
applicant has refused to negotiate Section 37 contributions with planning staff for a number of reasons, including: Section
37 contributions were made when the original project was approved in 1988; the overall amount of floor space has only
slightly increased when compared with the original proposal; the height has not increased; and they contend that the project
will provide affordable ownership housing opportunities.
Planning staff have carefully considered the applicant's position regarding a Section 37 contribution and continue to be of
the opinion that a negotiated contribution should be made to the City. Firstly, the Section 37 contributions negotiated for
the 1988 approval applied to the density approved at that time. The applicant is now proposing to add an additional 220
residential dwelling units. A preliminary value increase estimate provided by our Appraisal Services staff indicates that a
substantial potential increase in land value may be attributable to the proposed increase in residential density. Secondly,
residential density is measured on this property and throughout the Scarborough City Centre Plan based on units per
hectare (units per acre) not floor area. Lastly, with regard to providing affordable ownership housing, no definition of, or
guarantee to secure, affordable ownership housing on this property has been provided by the applicant.
The Section 37 agreement entered into with the City in 1988 was associated with the approval of 1340 dwelling units in the
City Centre, including 260 dwelling units approved for the southwest corner of McCowan Road and Town Centre Court. A
minor variance granted in June 1999 increased the number of dwelling units by 39 to 299 for this same property . The
Section 37 agreement involved a community benefits package for the City including contributions towards daycare,
pedestrian walkways, and boulevard landscaping in the City Centre. Some of the landscaping and pedestrian walkway
benefits will be phased as development of the 1340 dwelling units proceeds (1379 including the granted minor variance).
As well, $400,000 was deposited to the City Centre Area Development Reserve Fund. The Reserve Fund was established
by the former Scarborough Council to create a source of uncommitted funds "to facilitate or respond to opportunities for
capital infrastructure or community improvement/benefit in order to meet Council's strategic priority for development of
the City Centre."
A City-wide policy for the use of Section 37 is currently being developed. In this interim period, a Section 37 benefits
package in association with approval of the additional 220 dwelling units should be contributed to the City by the owner,
based on negotiations with staff. A portion of this contribution could be directed to the City Centre Area Development
Reserve Fund and the remainder directed to the City's Capital Revolving Fund for Affordable Housing. Use of the funds in
the City Centre Area Development Reserve Fund will ultimately result in additional amenities and benefits for the
development projects and residents in the City Centre including the subject proposal. Planning staff are recommending the
Official Plan and Zoning By-law Amendments be enacted by Council once the applicant has agreed to provide a Section 37
contribution, as negotiated with Planning staff, such negotiated contribution to be reported to Scarborough Community
Council and then City Council, prior to the enactment of the bills.
Consistency with the Official Plan and Zoning By-law
The Scarborough Official Plan designates the subject lands City Centre Residential Uses 'to provide for residential
facilities that will contribute to and enhance the basic City Centre concept as a business, cultural, social, recreational, and
governmental use to serve the City.'
The Metro Toronto Official Plan designates Scarborough City Centre as a Major Centre, comprising 'a mix of uses with a
concentration of employment activities, residential uses and other compatible uses in a compact, high-density, urban form
serviced by high capacity transit.'
The proposed increase in density is appropriate for this particular location for a number of reasons. Firstly, the subject
property has excellent accessibility to public transit. Both Ellesmere Road and Brimley Road are well served by TTC bus
service. There is a Scarborough RT station and a bus terminal at Scarborough Centre Station to the immediate east of the
subject lands. Existing and proposed pedestrian connections surrounding the subject lands will make it easy for residents of
the project to utilize public transit.
Increased utilization of public transit will contribute to the maintenance and growth of this public infrastructure, thereby
contributing to the possible expansion of public transit services to the City Centre in the future. The City Centre Secondary
Plan depicts a future RT station at the intersection of Brimley Road and the existing RT line. Discussions with the TTC
suggest that the future RT station, if built, will be located on the west side of Brimley Road. The extension of the Sheppard
Subway from Don Mills Road to the Scarborough City Centre is another possible future transit improvement which will
only become a reality if transit supportive development, such as the subject proposal, is constructed in the City Centre.
Decreased dependency on the automobile, which is a benefit to our environment, can be achieved if development is
concentrated around public transit. This proposal is ideally located, providing residents with convenient access to public
transit.
The proposal will be compatible with existing City Centre developments and will not have an adverse impact on the
surrounding area. The overall height restriction for the residential apartment buildings is not proposed to be changed and
will remain a maximum of 85 metres. The heights of 28 and 30 storeys are consistent with existing heights in the City
Centre and Phase One Omni building.
More residential uses in the City Centre will help support existing businesses and further employment expansion in the
City Centre. Jobs follow residential, as well as vice versa. The recent expansion at Scarborough Town Centre is a sign of
confidence in the City Centre. Bringing more people to live in the City Centre may fuel additional expansions.
Revolutionary changes are underway in how and where people work and shop. Increasingly people are telecommuting, and
locational decisions are increasingly tied to the amenities and housing availability of an area. With concern over school
closures south of Ellesmere Avenue, more residential uses in the City Centre will help reduce vacant pupil spaces in
existing schools. These and other emerging issues facing the City Centre will be explored as part of an upcoming review of
the City Centre Secondary Plan. Terms of Reference will be prepared and brought forward for Scarborough Community
Council's consideration later this year. This review will help define the role of Scarborough City Centre within the newly
amalgamated City, and will coincide with the work being done on the new Official Plan.
Conclusions:
The intensification of the lands to a higher density is, in the opinion of planning staff, considered good planning and may
enable further phases of residential uses to proceed on the subject lands, resulting in significant benefits to the City
including increased utilization of the Scarborough RT and existing public schools south of Ellesmere Road, support of
local employment and business, and development of attractive additions to the City Centre skyline. The proposal will not
have an adverse impact on the surrounding area and will contribute to the City Centre concept by enhancing the area as a
business, cultural, social, recreational and governmental Centre for the City. The applicant's proposal is subject to Section
37 of the Planning Act and a community benefits package should be provided by the applicant in exchange for the
proposed increase in residential density. The applicant has refused to negotiate a Section 37 community benefits package
with planning staff. The Official Plan and Zoning By-law Amendments should be enacted by Council subject to the
applicant agreeing to provide a Section 37 contribution, as negotiated with Planning staff, such negotiated contribution to
be reported to Scarborough Community Council and then City Council prior to the enactment of the bills.
Contact:
Joe Nanos
Senior Planner, Community Planning
Scarborough Civic Centre
Telephone: (416) 396-7037
Fax: (416) 396-4265
E-mail: nanos@toronto.ca
Ted Tyndorf, MCIP, RPP
Director of Community Planning, East District
List of Attachments
1. Existing Context Plan
2. Zoning
3. City Centre Land Use Plan
4. Figure 1 Site Plan
5. Figure 2 Overall Development Concept Plan
6. Figure 3 Elevation Plan
7. Figure 4 Perspective
8. Figure 5 Perspective
