Beaches-East York Missing Middle Pilot Project

The Pilot Project is intended to review appropriate City-owned sites in Beaches-East York (Ward 19) and work with the development industry and the community to build “missing middle” demonstration projects. The processes and approaches developed through this initiative will help inform approaches to missing middle projects on other sites, both publicly and privately owned, within the City.

As part of this work, staff are assessing the feasibility of building missing middle housing, ranging from duplexes to low-rise walk-up apartments, on selected City-owned sites that are designated Neighbourhoods in the City’s Official Plan. The project will employ the following principles:

  • sustainability and resiliency;
  • replicability;
  • accessibility;
  • compatibility; and,
  • cost-effective design.

Expanding Housing Options in Neighbourhoods is primarily a market housing initiative. The primary focus of the EHON work is the expansion of market rental housing options, in a range of formats, within the City’s Neighbourhoods. While this work will not necessarily result in the creation of deeply affordable rental housing, it will result in increased permissions for housing forms that support residents with a much broader range of incomes and household compositions at various life stages than are currently permitted within many of the City’s Neighbourhoods.

EHON is one part of a broader housing strategy that includes initiatives such as Multi-Tenant Housing permissions, Inclusionary Zoning, the Short-Term Rental By-law, Housing Now and Rapid Housing, and includes intergovernmental investments in purpose-built affordable housing in a variety of forms across the City.

Pilot Site Selection – 72 Amroth Avenue

In 2021, an initial site was selected based on high-level due diligence. Staff began studying the feasibility of missing middle building types on this site; however, in 2022, additional information was obtained detailing underground constraints on the site, and it was determined that the full missing middle development potential of the site would be significantly limited. The findings from this corner-lot typology study played an important role in examining challenges and opportunities for building missing middle buildings on City-owned sites, and was valuable in informing further site selection, modelling and analysis. The findings from studying this former site are included in the Typology Study section below. The lessons learned from the study can help inform future development on similar sites within the city.

Following the study, City staff and CreateTO subsequently identified a different site, 72 Amroth Avenue, as the preferred property for further consideration as part of the Pilot Project. This selection was made based on the criteria noted below:

  • The property is designated Neighbourhoods in the Official Plan and is zoned Residential (R) under city-wide Zoning By-law 569-2013.
  • It is located to the southeast of Danforth Avenue and Woodbine Avenue. It is anticipated that the intersection of Danforth Avenue and Woodbine Avenue will experience significant growth in the near term.
    • The lands north of the property fronting Danforth Avenue are designated as Mixed Use Areas in the Official Plan and are identified as an Avenue. Avenues are important corridors on major streets where development is to create new housing and job opportunities that are served by transit, while improving the pedestrian environment, and offer opportunities for people of all means to be affordably housed.
    • Woodbine Avenue is a Major Street on Map 3 of the Official Plan. Major Streets are currently being studied as part of the EHON Major Streets work, with the intention to review the opportunity for gentle intensification of residential units on lands abutting Major Streets.
    • The property is also located within the Woodbine Station Protected Major Transit Station Area (PMTSA), an identified growth area.
  • The property is well served by both transit and active transportation options with the TTC’s Woodbine Station (approximately a three-minute walk away) located just north of Danforth Avenue and bicycle lanes along both Danforth Avenue and Woodbine Avenue.

The existing context immediately surrounding 72 Amroth Avenue is defined by low-rise residential buildings to the east, south and west, and a number of one- to three-storey mixed-use (commercial-residential) buildings to the north, fronting Danforth Avenue. This site presents an opportunity to test new development permissions being considered by other City initiatives, including an opportunity to create a transition between the mid- to high-rise development expected on Danforth Avenue, and the low-rise built form to the south along Amroth Avenue, all the while enabling more housing.

Housing Action Plan

On March 21, 2023, the Chief Planner and Executive Director of the City Planning Division and the Executive Director of the Housing Secretariat presented Item – 2023.EX3.1, the Housing Action Plan Priorities and Work Plan for the 2022-2026 term of Council. The Pilot Project and increasing density on the selected site at 72 Amroth Avenue will provide insights that may help advance the direction on the “Transition Zones” and “Increasing Permissions for Housing and Addressing Exclusionary Zoning” items in the Housing Action Plan.

As part of the next phase of the Pilot Project, energy modelling will be undertaken to demonstrate compliance with the TGS energy and emissions targets, and a whole building life cycle analysis will be conducted to quantify the embodied carbon footprint.

Preliminary Development Option for 72 Amroth Avenue

As part of the due diligence phase of the Pilot Project, City staff, CreateTO, and the consultant team, consisting of Dubbeldam Architecture + Design, RDH Building Science, and Altus Group, have been studying the property to understand how missing middle forms of development may be built on the site. This work involved creating a preliminary massing option to be studied by the team.

The preliminary massing option developed represented a solution to optimize the property for missing middle housing while considering the current regulatory requirements. The current regulatory framework limits residential development to four storeys; however, the Pilot Team is exploring how additional height and density (four to six storeys, or more) may be contemplated at a scale that is compatible with the existing and planned neighbourhood, while also creating an appropriate transition from planned intensification along Danforth Avenue and Woodbine Avenue.

Illustrations included in this section of the website show the planned future context along Danforth and Woodbine Avenues and an elevation of the preliminary massing created for 72 Amroth Avenue.

 

Site Context Map for 72 Amroth Avenue.
Site Context Map for 72 Amroth Avenue.

 

A perspective of 72 Amroth Avenue surrounded by the planned future context of Danforth and Woodbine Avenues.
A perspective of 72 Amroth Avenue surrounded by the planned future context of Danforth and Woodbine Avenues.Planned future context illustrated above is indicative of mid-rise building envelope permission for the Office Priority Areas designation, as shown in the Danforth Avenue Planning Study (Coxwell Avenue to Victoria Park Avenue) along Danforth Avenue, along with the draft massing envelope contemplated for major streets by the EHON Major Streets team.

 

An elevation of the preliminary massing created for the site at 72 Amroth Avenue.
An elevation of the preliminary massing created for the site at 72 Amroth Avenue. Images above illustrate a design that is preliminary in nature and subject to change and do not represent an approved development. Any proposal on the property would be required to go through the necessary development review processes, including public consultation.

Sustainability and Resiliency

The property at 72 Amroth provides opportunities to demonstrate sustainability and resiliency in “missing middle” building practices. The design will be required to meet Tier 2 of the Toronto Green Standard Version 4 and will strive to achieve net zero emissions. To do this, the preliminary designs contemplate several key principles, such as limited use of concrete, passive heating and cooling systems, heat loss reduction strategies, rooftop space for solar panels and amenity/green space, green infrastructure, soft landscaping, among others.

Throughout 2021 and 2022, City Planning and Environment & Climate staff worked with CreateTO, the public agency that is responsible for managing the City of Toronto’s real estate portfolio, and a consultant team consisting of Dubbeldam Architecture + Design, RDH Building Science and Altus Group, to create and analyze preliminary architectural designs and project parameters, including energy modelling and construction costing, to help determine the financial feasibility of providing missing middle buildings on a City-owned site.

Additionally, a built form study was conducted to explore missing middle design options on a City-owned corner lot. The three options below illustrate different methods to increase density and explore issues faced when designing low-rise apartment buildings. While the Official Plan limits development within Neighbourhood designated sites to a maximum of four storeys, subject to conditions, a six-storey option was also explored in the context of a Major Street for the purposes of the built form study.

Missing middle design options:

A summary of missig middle built options including a 3-storey single exit stair with 7 units, 4-storey single exit stair and elevator with 8 units, and 6-storey building with 2 exit stairs and elevator with 6 units explored by the consultant team led by Dubbeldam Inc. Architecture + Design on a typical narrow corner lot, facing a Major Street and a Local Street.
A summary of missing middle built form options including a 3, 4 and 6-storey building explored by the consultant team led by Dubbeldam Architecture + Design on a typical narrow corner lot, facing a Major Street and a Local Street.

Findings from this typology study (September 2022) were informed by reviewing test cases, conversations with private and non-profit housing providers, and work with an architect, energy and cost consultant team. The corner-lot typology study identified a number of challenges and opportunities for building missing middle buildings through an examination of existing policies, processes, building code, design, construction and sustainability considerations:

Challenges and Opportunities

Existing Policy and Zoning Framework:

  • While the Official Plan permits buildings up to 4-storeys in Neighbourhoods, policies direct that new development be informed by the existing/prevailing character and should strengthen that character, making adding density to sites challenging.
  • Greater density and height could be accommodated on Neighbourhoods designated sites that are along Major Streets, within Protected Major Transit Station Areas/Major Transit Station Areas, and on corner lots.
  • Zoning regulations (e.g. maximum main wall height, maximum gross floor area (GFA), minimum landscaping and setbacks provisions, etc.) can prevent as-of-right triplexes, fourplexes and apartment buildings. Many missing middle developments require variances to the zoning by-law, which need to be approved by the Committee of Adjustment.
  • Even if approved at the Committee of Adjustment, missing middle projects face the possibility of third-party appeals to the Toronto Local Appeal Body (TLAB), adding to the length, cost, and uncertainty of the process.
An image showing the site context of a potential missing middle project on a corner lot, flanked by a Major and a Local Street
An image showing the site context of a potential missing middle project on a corner lot, flanked by a Major and a Local Street.

 

A 3d rendering of a 4-storey missing middle development on a narrow corner lot in a Neighbourhoods context, facing a Local Street and a Major Street. A corner lot in the City typically has two frontages facing public streets, with setback, building address and access, and landscaping conditions that differ from midblock lots.
A 3d rendering of a 4-storey missing middle development on a narrow corner lot in a Neighbourhoods context, facing a Local Street and a Major Street. A corner lot in the City typically has two frontages facing public streets, with setback, building address and access, and landscaping conditions that differ from midblock lots.

Process:

  • Some forms of missing middle housing are subject to Site Plan Control. The site plan control application process (e.g. review and response times, submission requirements, consultants, etc.) and costs are a barrier to the creation of smaller missing middle housing types.
  • A review of the site plan process and the submission requirements for these types of applications is necessary to ensure the number and scope of required submission items aligns with the nature of missing middle housing forms.
  • Recent changes to the Development Charges By-law and Parkland Dedication By-Law would help address some of the cost barriers to building missing middle housing. In July 2022, Council amended the:
    • Development Charges By-law to exclude 2nd, 3rd and 4th residential dwelling units constructed on a single lot from development charges. Such exemption applies only to a development of no more than 4 units on such lot.
    • Parkland Dedication By-Law by exempting the residential components of a building with no more than four dwelling units from parkland dedication. In addition, the creation of an additional dwelling unit in an existing building or one laneway suite or one garden suite on a lot is exempt from parkland dedication.

Sustainability and Resiliency:

  • Minimizing heat loss is important. This requires a compact form and controlled ventilation, including high performance windows, insulation, and air-tight construction. Adjusting setbacks would offset floorspace reductions due to thicker walls.
  • Avoid natural gas combustion for space and water heating, and appliances. Instead, electric heat pumps and induction stoves, plus solar photovoltaic technology can be used to offset electricity use. Rooftops must be designed to accommodate HVAC equipment and solar photovoltaic technology.
  • Reduce embodied carbon by first salvaging existing materials where possible, and by choosing high-quality yet low carbon materials such as wood framing and local brick. Higher carbon materials like concrete, spray foam, and aluminum should be avoided.
  • Prioritize green infrastructure and soft landscaping to help manage stormwater on-site. Ensure adequate soil volume for trees and avoid impermeable surfaces.
  • The Pilot will include a study of building envelope and mechanical systems that aim to achieve net zero operational emissions or better, and use low embodied carbon materials and construction to meet Toronto Green Standard Version 4, Tier 3, and Passive House performance levels.
A 4-storey missing middle option designed by Dubbeldam Inc. Architecture + Design that creates a compact built form, with high performance windows and building envelope, low-carbon wood cladding, and photovoltaics on roof.
A 4-storey missing middle option designed by Dubbeldam  Architecture + Design that creates a compact built form, with high performance windows and building envelope, low-carbon wood cladding, and photovoltaics on roof.

Cost-Effective Design:

  • Capital cost-effectiveness can be achieved through simplified architecture and faster construction methods (e.g. avoiding basements, encouraging pre-fabrication, modular construction etc.)
  • Lower and stable operating/maintenance costs of building can be achieved through low energy demand and electrification.
A rendering of a 4-storey missing middle development facing the street. The building has balconies facing the street, is about two storeys taller than its surroundings, and allows for tree planting along both frontages.
A rendering of a 4-storey missing middle development facing a Major and Local street. The building has balconies facing the street, is about two storeys taller than its surroundings, and allows for tree planting along both frontages.

Accessibility (Ensuring access/egress points and ground floor units that are barrier-free):

  • Basement units that require window wells to allow light into the units would raise the ground floor above grade, requiring stairs and ramps to access the first floor.
  • On narrow lots, basement units may be difficult to accommodate without encroachments into the public right of way (e.g. door swings, ramps and/or stairs).
  • If amenity space is incorporated into the design, there should be barrier free access to all residents. Elevators are required for buildings 4-storeys or taller.

Access/Egress Challenges:

  • Architects, planners and developers desire staying within Part 9 of the Ontario Building Code for missing middle projects because Part 3 requires the use of expensive elevators, sprinkler systems and two means of access and egress (stair) requirements for buildings exceeding 3-storeys.
  • On small and narrow lots, a single access/egress stair option as opposed to requiring a second egress for buildings 4-storeys or taller, would allow for more units on small sites and more efficient building designs.
  • Fire safety analysis and building code expertise is required to propose and justify an alternative to the requirements in the Ontario Building Code.
  • The Pilot will explore design solutions working within the current regulatory requirements to optimize missing middle projects on small sites. Other necessary City Divisions will be consulted as design options are further developed.
Ground floor plan of a 4-storey missing middle development with a single stair and elevator core allows for accessible and barrier-free ground floor units
Ground floor plan of a 4-storey missing middle development with a single stair and elevator core allows for accessible and barrier-free ground floor units.

Parking:

  • Previously, minimum parking requirements constituted a barrier to the development of low-rise multi-unit housing by increasing costs and potential zoning variances required.
  • In November 2021, City Council adopted a report that recommended the removal of parking minimums in new development. The removal of parking minimums helps reduce the number of variances required to facilitate a missing middle project and the space of sites can be used for more efficient purposes (e.g. build larger units, more soft landscaping/ plantings, greater setbacks to enhance privacy, outdoor amenity space, etc).
  • A low- or no-parking approach is especially relevant in neighbourhoods that are well served by frequent transit, whether bus, streetcar, or subway service. The presence of nearby retail or other services would also help future residents meet their day-to-day needs without the need for a private car.

Unit Types:

  • It can be challenging to provide diversity in unit types on smaller sites. One-bedroom units often become the more feasible option rather than family sized units, and replicability in the floor plans makes for more efficient design and construction.
  • Amenity spaces can be difficult to accommodate on smaller/narrow sites. Zoning by-law 569-2013 requires indoor and outdoor amenity space for buildings with 20 or more units.
  • There are trade-offs associated with basement units. While they may allow more total units without significant overall height increases, below-grade work is generally expensive and carbon-intensive. Below-grade space may also be needed for mechanical equipment, laundry facilities, and/or storage.  Furthermore, below grade units may pose challenges for the provision of accessible and barrier-free units at grade.
Upper storey floor plan of a 4-storey missing middle development with a single stair and balconies. Layout allows for living and dining space with a single bedroom and bathroom and laundry access within each unit
Upper storey floor plan of a 4-storey missing middle development with a single stair and balconies. Layout allows for living and dining space with a single bedroom and bathroom and laundry access within each unit.
  • Council dedicated 72 Amroth Avenue to be used for the Beaches-East York Pilot Project to develop missing middle housing and to help achieve the strategic direction outlined in the Housing Action Plan.
  • City Planning and CreateTO will be working together to undertake a city-initiated Official Plan Amendment and Zoning By-law Amendments process, including public engagement, to facilitate the development of an appropriate missing middle project on 72 Amroth Avenue. Council directed that the site be transferred to CreateTO to undertake this process.
  • As part of engagement strategy for the Pilot Project, Council directed CreateTO, in consultation with City Planning, to establish an advisory group in the first quarter of 2024 to advise on the Beaches-East York Pilot Project at 72 Amroth Avenue and help inform lessons learnt in developing missing middle housing of a similar scale on other appropriate sites.

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