The Danforth
Avenue Study
PART 5
5.1 Policy Changes
Implementation
5.1/ Policy Changes
5.2/ Municipal Real Estate Investment Plan
5.3/ Additional Tools
New Official Plan
The new Official Plan designates the lands adjacent to Danforth Avenue as a Mixed
Use Area with an Avenue overlay. This is an appropriate designation which is fully
supported by the vision and recommendations within this report. The new Official
Plan does not include a Secondary Plan for the Oakridge Community, hence the Mixed
Use Area and related development policies will establish the primary policy direction
for redevelopment. Working under the expectation that the new Official Plan will come
into effect and will contain the policies that are currently under consideration,
amendments to the policies of the new Official Plan to support this Avenue Study will
not be required. The City should consider amending the new Official Plan by creating
a Secondary Plan or Area Specific Policy which include high level Urban Design
policies and by attaching Detailed Guidelines as an appendix to the Plan. This would
establish a mechanism to implement the Urban Design Guidelines recommended in
Section 4.5 and would give them formal status as a guide to the review of future
rezoning and minor variance applications and all Site Plan Approvals.
Existing Official Plan
Should implementation of the new Official Plan be delayed, the existing (former City of
Scarborough) Official Plan and Secondary Plan will continue as the governing policy
direction. The Official Plan and Oakridge Community Secondary Plan set out the
goals and objectives of the City with respect to the development and redevelopment
of lands along Danforth Avenue.
One of the fundamental recommendations within this Study is that the policy direction
for Danforth Avenue be forward looking and embrace an urban vision for the Avenue.
Existing policies in the Official Plan and Secondary Plan are generally appropriate in
their focus and thrust. They encourage the development of a mix of retail and
services uses, housing, offices and community facilities to create a pedestrianoriented 'Main Street'. The Secondary Plan's Residential Mixed-Use designation
recognizes existing automotive uses but does not permit the addition of new autooriented developments as further service stations, used car sales lots and public
garages are not permitted on properties fronting on Danforth Avenue. Though new
industrial uses are not prohibited by the Commercial Mixed-Use designation, new
industrial uses must be compatible with surrounding residential and commercial uses.
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The Danforth Avenue Study , Toronto 2006
Generally, permitted commercial uses on Danforth Avenue should include banks,
business and professional offices, day nurseries, financial institutions, funeral homes,
hotels and motels, medical centres, offices, personal service shops, places of
entertainment, private home daycares, restaurants, retail stores, recreational uses,
specialized commercial uses. Institutional uses, such as places of worship,
educational institutions and fraternal organizations, should also be permitted.
Permitted residential uses will include multiple family dwellings. Single-family
detached dwellings, semi-detached dwellings, duplexes and stacked townhouses
should not be permitted along Danforth Avenue.
The policy focus respecting auto uses is generally appropriate, given the historic and
current economic importance of auto uses to the Avenue. An important conclusion of
this Study is that most existing auto uses should be permitted to remain as legal as of
the date the by-laws which implement the Danforth Avenue Study are passed, under
the assumption that these properties will be redeveloped when market conditions are
favourable, given the significant development provision in the recommend zoning. In
keeping with current Official Plan policy, new auto uses along Danforth Avenue should
not be permitted.
Although the policy direction and permitted land use designations are appropriate, site
or area specific amendments to the Secondary Plan would be required to emphasize
higher densities as well as good urban design, which is highly appropriate in the
context of the vision for the Study Area set out in this report. Currently, maximum
permitted densities are limited to between 1.0 and 1.5 times the site area, which is
insufficient to achieve the level of intensification envisioned in this report and
insufficient to ensure that places of interest and an adequate number of people will
populate Danforth to create a vibrant Avenue. Land Use policies should intensify
development along Danforth Avenue, specifically in the precinct areas. The Land Use
Plan and the Urban Design Plan provide direction with respect to appropriate densities
along the Avenue. The Official Plan and Secondary Plan should be amended to
reflect these recommendations, with permitted densities ranging between 2.0 and 4.0
times the area of the lot, depending upon location, and, as above, the City might
consider an amendment to the Official Plan to implement the Urban Design Guidelines
recommended in this Study.
Zoning
The zoning within the Study Area, which is subject to Oakridge Community Bylaw 9812, is complex and there are approximately 13 different land use zones
on Danforth Avenue. This fragmentation does not permit an appropriate
degree of certainty to allow for a suitable range of land uses to be developed in
response to changing market conditions. From a building massing and urban
design perspective, the lack of rigorous and consistent standards has
contributed to the pattern of development apparent in the Study Area today,
which lacks cohesiveness. This condition sends an implicit signal to the
market that there is no strong vision for how the area is to change over time.
The zoning should be completely revised, either across the Avenue or on a
block by block basis, to correspond with the level of development proposed in
this Study, specifically with respect to the Urban Design Plan. As well, the
permitted gross floor area of development in these zones is low, generally
between 33% to 100% of the site area, and should be increased to between
2.0 and 4.5 times the site area, depending upon location, and should be
consistent with amendments made to the Official Plan and Secondary Plan.
Height permissions should be in accordance with those on the Land Use Plan
and Urban Design Plan. Policies that address the provision of parking within
the Study Area should be introduced in addition to building and land use
policies. These policies should restrict the development of surface parking
lots and parking structures fronting on Danforth Road or Danforth Avenue and
should address the physical relationship of parking facilities to public places
and residential areas. Again, these should reflect the recommendations in the
Urban Design Plan and Land Use Plan.
To promote consistency of development form, the same zoning standards
should be adopted across the length of the corridor and should be drafted
around the Urban Design Plan. This will ensure that expanded or redeveloped
auto uses will be subject to the same design standards as new mixed uses,
such as:
• A minimum height of 3 storeys for new mid-rise development on primary
streets;
• A 0.0 metre setback from the front lot line on primary streets and a 1.5
metre setback from the front lone line on secondary and local streets; and,
• Locating access and service doors off a side street or rear laneway.
Zoning changes with respect to uses will follow the recommended revisions to the
existing Official Plan and Secondary Plan. Zoning will have to include both a
residential and a commercial category. Most existing auto uses should be permitted
to remain as legal. While these properties will not spearhead redevelopment, it is
expected that they will gradually be redeveloped over time. New auto uses (gas
stations, auto sales centres and parts, service and repair centres) should not be
permitted. Notwithstanding, there are four Danforth properties currently used for auto
parts and service uses that the City may wish to consider making legally nonconforming:
• 3180 Danforth Ave (currently N&J Car Mechanics and Premium Plus Auto, west of
Pharmacy Avenue);
• 3353 Danforth Ave (currently General Auto Service, west of Byng Avenue);
• 3310 Danforth Ave (currently Auto Trim & Upholstery, west of Robinson Avenue);
and,
• 3465 Danforth Ave (currently Racetrack Auto Centre, west of Leyton Avenue).
The Danforth
Avenue Study
PART 5
Implementation
non-conforming would be permitted to remain but cannot be expanded without
planning approval. The City can determine at the time of an application for
expansion whether the expansion should be denied, with the hope that the use will
relocate elsewhere, or whether the use can be successfully incorporated into the
ground floor of a mixed use building.
Several properties south of Danforth Avenue and north of the CN tracks are also
auto-focused. These properties are beyond the scope of this Study and the above
policy recommendations do not apply. The City should, however, Study the impact
of any auto use policy changes proposed for Danforth Avenue on properties
throughout the broader community. The City should review all adjacent planning
regulations and consider whether such properties should have similar auto use
policies or whether the proposed policies might inadvertently affect the number of
auto uses on nearby lands.
N&J Car Mechanics and Premium Plus Auto is directly south of Madelaine Park and
the remaining three are adjacent to Oakridge Park. As these parks are important civic
amenities and are expected to be focal points along Danforth Avenue, it would be
desirable to more actively encourage these properties to be redeveloped as Mixed
Use.
Generally, auto sales centres will be permitted to remain as legal uses. Many of these
businesses are on leased land and will relocate as market pressure intensifies. As
they are often housed in temporary structures and, as the sole use, will not likely seek
significant expansion it will be difficult to enforce specific design guidelines. If the site
is to be redeveloped, but the use is to remain as part of a larger development, they
will have to be incorporated into the ground floor of a mixed use building and will be
subject to the same zoning standards and urban design guidelines as other new
developments along the Avenue.
Auto parts and service centres that will be permitted to remain as legal uses should
be allowed minor variances but, larger changes or an expansion would trigger a full
consideration of the uses in relation to the approved zoning and urban design
guidelines. The four auto service stations that are recommended to be legally
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The Danforth
Avenue Study
PART 5
Implementation
Summary of Recommendations
The following chart summarizes the zoning recommendations for Danforth
Avenue referenced throughout this report. These recommendations will guide
amendments to the Official Plan and Zoning By-law, where applicable.
Parking
Minimum
Residential Visitor:
0.2 stalls per unit;
0.13 stalls per unit as area public parking becomes available supporting justification required
Danforth Avenue Zoning Recommendations
Use
Height
Height
Density
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The Danforth Avenue Study , Toronto 2006
Commercial uses at grade
with commercial uses or
multiple family dwellings
above grade
Office Commercial:
Maintain “Reduced” parking standards option in existing
Oakridge Community Bylaw modify requirements > 1000
sq.m. for office parking to 2.5 stalls per 100 sq. m. of GFA
Permitted commercial uses should include
banks, business and professional offices, day
nurseries, financial institutions, funeral homes,
hotels and motels, medical centres, offices,
personal service shops, places of
entertainment, private home daycares,
restaurants, retail stores, recreational uses,
specialized commercial uses. Institutional
uses, such as places of worship, educational
institutions and fraternal organizations, should
also be permitted. New auto uses (gas
stations, sales centres and service and repair
centres) should not be permitted.
Minimum
3 storeys
Generally
Maximum 5 storey base plus 2 storey setback
(with a setback of 1.5 metres)
Key Nodes
Maximum 8 storey base plus 2 storey setback
(with a setback of 1.5 metres)
Pre-war Main Street
Maximum 2 storey addition
Minimum
2.0 fsi minimum
Generally
3.5 fsi maximum
Key Nodes
4.5 fsi maximum
Pre-war Main Street
2.5 fsi maximum
Primary Streets
0.0 metres from the front lot line
Secondary & Local
Streets
1.5 metres from the front lot line
Residential Tenant:
Bachelor - 0.3 stalls per unit;
1 bdrm - 0.7 stalls per unit;
2 bdrm 1.0 stalls per unit;
2+ bdrm 1.2 stalls per unit.
Retail Uses:
1 stall per 80 square metres of GFA
Restaurant Uses:
1 stall per 33 square metres of GFA
Maintain existing minimum bylaw supply rates for remaining
land uses in Oakridge Community Bylaw;
Adopt Shared Parking Principles similar to City of
Mississauga standards achieves slightly higher office rates
during weekday afternoon periods relative to City of Toronto
standards.
Maximum
Proposed commercial parking supply beyond the minimums
identified shall be provided in municipally operated parking
facilities see “Provision of publicly available parking supply”
in Section 4.7.3.9 for options of achieving this strategy.
Maximize On-street Paid Parking along Danforth corridor
Consider Permit Parking system for residential side streets
General Parking
Policies
Staff should recommend for approval by Council a well
understood, publicly acceptable method for the provision of
area public (municipal) parking coincident with the adopted
Zoning recommendations provided for herein.
The Danforth
Avenue Study
PART 5
Implementation
5.2
Municipal Real Estate Investment Plan
Along with facilitating the redevelopment of privately-held lands along Danforth
Avenue, these capital initiatives will do much to demonstrate the City's commitment to
the transformation and improvement of Danforth and will further augment the
improvements completed under the existing Community Improvement Plan. We
recommend that the City continue to encourage the involvement of the residents and
Business Association, given the success to date with façade and roadway
improvements, and to engage in a dialogue with the community and with stakeholders
in the Study Area in order to determine how best to move forward. The actual
implementation of these capital improvements will also require more detailed
technical investigations, and in many cases direct cooperation with private land
owners.
Achieving the vision for Danforth Avenue will require the participation of numerous private
landowners and developers, in cooperation with residents and businesses in the area.
However, there are several initiatives which should be led by the City. The Study
recognizes that other areas of the City demand the attention of Council and merit
investment and within this list of public initiatives a degree of selection and prioritization is
required. While many of these are comprehensive, longer term strategies, the purchase of
lands to create a small parkette, which immediately enriches an intersection or block, or to
connect a street, which immediately improves circulation, are examples where the City
can allocate financial resources to achieve the greatest public benefits most quickly. The
Municipal Real Estate Investment Plan illustrates some of these potential investments,
most of which are focused on the improvement of the public realm. These investments
are described in greater detail below.
DENTON AVE
DENTON AVE
O
NF
DA
LANDRY AVE
Crossroads
Plaza
August
Parkette
Lucy Ave Extension
(3 single family houses)
2
Community
Facility
Mansion
Ave Park
lands already within
public ownership
Land Acquisition
Land Disposition
Coventry
linear park
St Extension
5 (6Coventry
single family houses)
MANSION AVE
Legend
Hollis /
Kalmar Park
Y ST
ENTR
COV
Ave Extension
3 (4Mansion
single family houses)
LUCY AVE
BALFORD AVE
LEYTON AVE
BYNG AVE
WAKEWOOD ST
Parking Facility
(subsequent disposition
for development:
1206sq.m commercial
85 apartment units)
DANFORTH AVE
AUGUST AVE
KENWORTHY AVE
EMMOTT AVE
SNEATH AVE
THORA AVE
VICTORIA PARK AVENUE
Parking
Facility
P
Scotia
Parkette
Danforth Rd
6 Realignment
DANFORTH AVE
P
Denton Ave
7 Extension
WARDEN AVE
Laundry
Parkette
RD
SCOTIA AVE
commercial development
(500sq.m. commercial
18 apartment units)
mixed use development
(760sq.m. commercial
46 apartment/townhouse units)
Pharmacy
Parkettes
Macey Ave
Parkette
H
RT
residential development
(6 single family houses)
AUGUST AVE
WANSTEAD AVE
Madeleine St
1 Extension
ST DUNSTAN DR
Sutherland Ave
Parkette
PHARMACY AVE
MACEY AVE
residential development
(20 townhouse units)
Trail Easement Agreement
New Roadway Segment-in public ownership
|
Oakridge Park
4 (19
single family houses)
Long term lease agreement
or conveyance of portion of
property as parkland
0
25m
50m
100m
200m
New Roadway Segment-to be acquired
City-owned Surplus Land
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The Danforth
Avenue Study
PART 5
Implementation
Community Improvement Plan
Section 28 (2) of the Planning Act provides that a council of a municipality
which has an Official Plan containing provisions relating to community
improvement may by by-law designate the whole or any part of an area covered
by such an Official Plan as a Community Improvement Plan Area. Section 2.6.2
of the Scarborough Official Plan authorizes the designation of areas as
Community Improvement Areas and the preparation of Community
Improvement Plans. In September 2003, City Council adopted a Community
Improvement Plan for the Community Improvement Project Area along Danforth
Avenue and Danforth Road from Victoria Park Avenue to Warden Avenue. The
by-law passed by Council limited the Community Improvement Plan to the
provision of grants under a Commercial Façade Improvement Programme. This
by-law should be amended to increase the boundaries of the Community
Improvement Project Area, as shown on the adjacent map, to potentially provide
incentives for improvement of the public realm by the private sector should
applicable programs become available, as is permitted by the Planning Act.
These additional powers will allow the City to improve the street network and
parking facilities, create more functional and beautiful open spaces and better
position certain lands for development.
Street Acquisitions and Configurations - Coventry Street,
Mansion Avenue and Lucy Avenue
Coventry Street, Mansion Avenue and Lucy Avenue are currently disconnected
and do not form a complete street south of Danforth Avenue. The City should
acquire land within these gaps to create a continuous east west route parallel to
Danforth, similar to Denton Avenue on the north side of Danforth Avenue.
Although approximately 13 private residential properties would be required to
complete this route, a connected street will improve circulation throughout the
Study Area and, as a secondary street, it will provide an attractive route for
pedestrians and cyclists that links with many existing and proposed parks and
the community facility south of Oakridge Park. As well, over 2,000 new
residential units can be accommodated along Danforth Avenue and it is
anticipated that this additional level of access will ultimately be required.
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The Danforth Avenue Study , Toronto 2006
Street Acquisitions and Configurations - Danforth Road
The existing intersection at Danforth Avenue and Danforth Road is awkward, as
Danforth Road does not connect with Danforth Avenue at right angles resulting in the
parcel at the northeast corner of the intersection being pie-shaped and difficult to
develop intensively. As well, Danforth Road is not aligned with streets on the south
side of Danforth Avenue. By acquiring and disposing of land:
· Danforth Road can be re-aligned with Danforth Avenue to create a traditional
four way intersection with an improved development parcel and plaza on the
prominent northeast corner;
· Denton Avenue can be re-aligned to connect with Danforth Road in a TIntersection; and,
· Some City land can be disposed of to provide land for single-family home and
apartment development.
Parking
The lack of commercial parking for commercial uses has been cited as a community
concern and there is little off-street parking throughout Oakridge, other than on a few
of the larger privately held properties. As Oakridge redevelops, the need for additional
parking will arise. Some lands south of Danforth Avenue have been identified as
candidate sites for area public parking. A strategy for pursuing public parking in
Oakridge should be adopted given the various means identified in Section 4.7.3 that
are available to the City of Toronto. Over time, as development pressure intensifies,
the sites can be developed with residential or mixed use buildings and the parking
facilities can be incorporated into a below grade parking structure that services both
residents of the development and visitors to the area.
Parks
Although Oakridge Park is a popular community destination and essential City resource, it
is not an official park as it is owned by the Toronto District School Board rather than the
City. Without City ownership and the certainty that it will remain public open space, the
Oakridge community is considered park deficient. The City will need to work with the
School Board to either acquire the land, secure a long-term lease or, at a minimum, to
formalize its role as a park. The park is currently poorly configured, with street frontage
only on Danforth Avenue, reflecting its historic use as an elementary school and limiting
access and safety. Ideally, if the City obtains ownership of the park, the western portion
of the park can be sold for development and a new public street, and lands on the eastern
edge of the park, on the west side of Leyton Avenue, can be purchased to support park
expansion. Although 19 private residential properties on Leyton Avenue will be
impacted, up to 46 townhouse units can be constructed on the disposed lands. The reconfigured park will have street frontage on all four edges providing better integration with
the surrounding community. The potential addition of a community facility south of the
park and just north of the rail corridor will further strengthen the park's role as a
community asset.
Throughout the Study Area, additional lands can be purchased by the City to create new
parkettes, where open space would contribute to the streetscape, to improve
connections, such as the Coventry linear park, or to facilitate existing park enhancement,
such as the Madelaine Street extension which establishes a defined edge along the north
side of Madelaine Park. City owned land north of Danforth Avenue, between Macey
Avenue and St. Dunstan Drive, can be sold for development of up to 20 townhouse units
to finance various land acquisitions.
Community
Improvement
Project Area
Implementation
5.3
Many of the recommendations within the Municipal Real Estate Investment Plan include
the municipal acquisition of land. The City has several methods for acquiring land,
particularly for parks or road purposes, which can be employed to implement these
recommendations:
New developments within the Study Area should enhance the overall quality of the district
in a manner which helps to achieve the vision for the Danforth Avenue. This requires a
regulatory approach which is focused on the quality and excellence of built form carefully
considered with each new application within the corridor. The design and built form
recommendations created through this Study have been established to assist Council in
evaluating future development proposals to ensure a high quality of distinctive new
development in the corridor. The height and density recommendations established
through the Land Use Plan and the Urban Design Plan have been vetted with the broader
community, and are appropriate for main street renewal and will not overwhelm the public
realm or the existing two to three storey pre-war buildings along the Avenue, or cause
excessive shadowing on the public streets.
1. The Development Approval process: either pursuant to the parkland dedication
requirements of Section 42 (1) of the Planning Act or pursuant to Section 37, if
additional land for parks over and above the dedication requirements is desired.
2. Partnership Agreement: with the Toronto District School Board, for example, to
secure the long-term use of Oakridge Park as a publicly accessible park.
3. Right of First Purchase: the City would have the first right to purchase a property
when it comes on the market, specifically for houses adjacent to Oakridge Park. This
would require prior agreements with specific landowners that grant the City the Right
of First Purchase.
4. Capital Improvements: as part of the Parks or Works budget the City could purchase
land for parks or road purposes.
5. Land Disposition/Acquisition: to finance the purchase of land for parks or road
purposes, the City could sell land to a developer, specifically if the land is considered
surplus; the City has the right to acquire and dispose of land pursuant to Section 25
(1) of the Planning Act.
6. Expropriation: though generally a less desirable form of land acquisition, the City
could expropriate specific properties for fair market value, particularly hold out
properties within a larger group of properties that are being purchased for a park or
road expansion.
The Danforth
Avenue Study
PART 5
Implementation
Additional Tools
It is almost certain that some development applications submitted in the future will
exceed the height and density recommendations established through this Study. This
plan proposes to treat additional height and/or density as valuable commodities which
can used to achieve various public realm improvements within the district, where
physically appropriate. Additional height may be considered by council on a quid-proquo basis in which the developer agrees to undertake or fund improvements to the public
realm or provide other public benefits such as the development of structured public
parking to strengthen commercial use within the corridor. To assist with the assessment
of development proposals under these circumstances, it is recommended that a
development and design review process for major private sector projects be adopted.
The peer review could augment the City's current development application process to
address the more qualitative aspects of design and would also be applicable for all public
sector and infrastructure projects. This peer review process has been used for new
development along Toronto’s waterfront and has been proposed for significant new
buildings downtown. A similar approach would benefit Toronto’s Avenues, where the
quality of change significantly impacts the future vitality of an Avenue.
Council shall consider the allocation of additional height if the development meets the
following criteria:
· The applicant has submitted all required rezoning information
· The proposed development adheres to the design guidelines and recommendations
presented in this Study
· The applicant has entered into an agreement under Section 37 of the Planning Act to
provide public benefits as set out below, and
· The applicant has successfully completed Architectural Peer Review
|
When passing by-laws authorizing additional height and/or density it is
recommended that Council shall authorize the use of Section 37 of the
Planning Act, and enter into legal agreements under that Section, to secure
some or all of the following public benefits:
· Land for public park designations as per the Municipal Real Estate
Investment Plan (in addition to the parkland dedication requirements of
Section 42 (1) of the Planning Act, if additional land for parks over and
above the dedication requirements is desired).
· Full park development as outlined in the Public Realm Plan, including
sidewalks, the planting of trees and landscaping, pedestrian scale
lighting, the provision of street furnishing, and special features or
amenities as determined by the municipality.
· Development of all streetscape frontages of the property abutting a
public street to include Secondary Street and Local Street streetscapes.
· Community services and facilities, such as new child care facilities
· Cash contributions equivalent to a set percentage, to be determined by
council, of the project's gross construction costs to be utilized for public
realm improvements or other public benefits within the Study Area,
including public art.
It should be noted that, prior to significant new development along Danforth
Avenue, servicing/infrastructure capaCity (as well as transportation, education
and community facility capaCity) should be determined before this
development can occur so that additional capaCity requirements are known
and planned for in advance of development.
This report provides the basis for changes to the planning framework,
specifically the Scarborough Official Plan, the Oakridge Community Secondary
Plan and the applicable Zoning By-law. These changes aim high, but can be
achieved through a sustained commitment to the Study’s vision and policy and
design recommendations. To successfully direct the future of Danforth
towards that of a vibrant and beautiful Avenue, municipal leaders must work
with the broader community to champion the objectives of this Study, from the
communication of goals through to the development of additional housing
units, commercial space and community amenities.
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