Executive Summary
Apartment Infill in Toronto: A Ten Year Review (1999-2009)
This study (pdf) analyzes the characteristics of rezonings for infill development on privately-owned rental apartment sites in Toronto for the period 1999-2009 and begins to identify patterns inherent to this type of development.
The purpose of this study was to provide a knowledge base and directions for further study from which to develop policies and practices to encourage appropriate infill development on more of Toronto’s existing post-war rental apartment sites.
Approach
The study required:
- identifying approved rezoning applications for infill development on existing rental apartment sites which were submitted between 1999 and 2009, and pulling key data from planning reports and zoning bylaws about each one;
- supplementing and verifying the data with staff knowledge and municipal databases; and
- accessing other available data relating to tax assessment, residential rezonings on all sites during the study period and the locations of all post-war residential apartment buildings.
Highlights
Between 1999 and 2009, over 10,000 new housing units were approved to permit infill development through rezoning on sites with existing rental apartment buildings in Toronto. Infill development on sites owned by Toronto Community Housing were excluded from the study.
Tenure
- About one quarter (26%) of all new residential units approved on existing rental apartment sites was approved as rental (2,624 of 10,076 units). This is 3 to 5 times higher than the rate of new rental housing production city-wide, based on City Planning Division estimates of between 5% and 8% over the last 15 years.
- Projects which include rental units make up close to half of all the projects (45%, or 15 of 33 sites).
- Most of the approved new units (69%) are condominium units.
- About one quarter (26%) of all new residential units approved on existing rental apartment sites was approved as rental (2,624 of 10,076 units). This is 3 to 5 times higher than the rate of new rental housing production city-wide, based on City Planning Division estimates of between 5% and 8% over the last 15 years.
- Projects which include rental units make up close to half of all the projects (45%, or 15 of 33 sites).
- Most of the approved new units (69%) are condominium units.
Demolition and retention
- Most rezonings (76%) retained all existing rental apartment buildings (25 of 33 sites).
- Most rezonings (76%) retained all existing rental apartment buildings (25 of 33 sites).
Impact of location (transit access and rent levels) on construction status
- Most rezonings which have been constructed are:
- located in rent zones with average, above average or much above average rents; and/or
- located within 800 m of existing or proposed higher-order transit; with the exception of projects which received housing subsidies.
- While there have been several rezonings for infill development on sites with existing apartment buildings in lower rent areas, so far construction has only begun on projects which received housing subsidies in these lower rent areas.
- Most rezonings which have been constructed are:
- located in rent zones with average, above average or much above average rents; and/or
- located within 800 m of existing or proposed higher-order transit; with the exception of projects which received housing subsidies.
- While there have been several rezonings for infill development on sites with existing apartment buildings in lower rent areas, so far construction has only begun on projects which received housing subsidies in these lower rent areas.
Property tax revenue
- On average, each new unit provides $2,192 per year in property taxes for municipal and education purposes, based on new assessment values available for 9 sites.
- On average, each new unit provides $2,192 per year in property taxes for municipal and education purposes, based on new assessment values available for 9 sites.
Current planning framework
- Eighty percent (80%) of sites containing existing post-war rental apartment buildings are designated in the Official Plan as Apartment Neighbourhoods.
- The majority of sites are not in areas to which the Official Plan directs significant growth.
- Eighty percent (80%) of sites containing existing post-war rental apartment buildings are designated in the Official Plan as Apartment Neighbourhoods.
- The majority of sites are not in areas to which the Official Plan directs significant growth.
Comparison to pattern of residential rezonings city-wide
- The spatial distribution of apartment infill rezonings is different from the overall spatial distribution of residential rezonings.
- Apartment infill rezoning represents:
- a small portion of overall redevelopment in the Downtown;
- a significant portion of overall redevelopment in the Yonge/Eglinton and Sheppard/Don Mills areas; and
- a large portion of overall redevelopment in parts of the inner suburbs (away from the Centres) where there is otherwise little new residential development.
- The spatial distribution of apartment infill rezonings is different from the overall spatial distribution of residential rezonings.
- Apartment infill rezoning represents:
- a small portion of overall redevelopment in the Downtown;
- a significant portion of overall redevelopment in the Yonge/Eglinton and Sheppard/Don Mills areas; and
- a large portion of overall redevelopment in parts of the inner suburbs (away from the Centres) where there is otherwise little new residential development.
Future potential for infill development
- The over 10,000 approved new housing units represents infill development on less than 3% of all 1,200 existing apartment sites in the City of Toronto.
- There are a large number of post-war high-rise apartment buildings in areas with high rents. However, the majority of existing post-war high-rise apartment sites are located in areas with rents that are average, below average or much below average.
- Clusters of sites which have not yet been redeveloped offer numerous infill and area revitalization opportunities, including high-rise apartment communities near new and existing higher level transit stations
- While the majority of apartment tower sites may not be suitable for infill development, there is potential for a significant number of existing apartment building sites to accommodate infill development. If only 10% of apartment tower sites (120 of approximately 1,200 sites) were developed with new residential infilln, the municipal share of the property tax revenue from those projects is estimated to be $27.6 million annually.
- The over 10,000 approved new housing units represents infill development on less than 3% of all 1,200 existing apartment sites in the City of Toronto.
- There are a large number of post-war high-rise apartment buildings in areas with high rents. However, the majority of existing post-war high-rise apartment sites are located in areas with rents that are average, below average or much below average.
- Clusters of sites which have not yet been redeveloped offer numerous infill and area revitalization opportunities, including high-rise apartment communities near new and existing higher level transit stations
- While the majority of apartment tower sites may not be suitable for infill development, there is potential for a significant number of existing apartment building sites to accommodate infill development. If only 10% of apartment tower sites (120 of approximately 1,200 sites) were developed with new residential infilln 2, the municipal share of the property tax revenue from those projects is estimated to be $27.6 million annually.
Conclusion
Policies and practices to encourage infill development are identified, including:
- working with owner/developers of sites in strategically-located apartment sites;
- revising current Official Plan policies related to infill development on apartment sites;
- different tools and approaches in high-growth and low-growth parts of the city.
For more information about this report, please contact tower@toronto.ca
Summary Map of Apartment Site Infill Locations
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