STAFF REPORT
ACTION REQUIRED
3560 and 3600 Lake Shore Boulevard West -
Official Plan and Zoning Amendment Applications -
Preliminary Report
Date: July 28, 2010
To: Etobicoke York Community Council
From: Director, Community Planning, Etobicoke York District
Wards: Ward 6 – Etobicoke-Lakeshore
Reference
10 193543 WET 06 OZ
Number:
SUMMARY
This application is subject to the new provisions of the Planning Act and the City of
Toronto Act, 2006.
This application proposes the redevelopment of a 4.33 hectare former industrial site, now
vacant, at 3560 and 3600 Lake Shore Boulevard West. A residential development of
approximately 550 units is proposed. The
proposal includes mid-rise apartment
buildings along the Lake Shore Boulevard
West frontage, which may have retail or
commercial uses on the ground floor. On
the balance of the site, approximately 200
stacked townhouses, new parkland and new
public roads are proposed.
This report provides preliminary
information on the above-noted
applications and seeks Community
Council's directions on further processing
of the applications and on the community
consultation process.
The Ward Councillor held a public
information session on this application on
Staff report for action – Preliminary Report – 3560 and 3600 Lake Shore Boulevard West 1
June 28, 2010. Planning staff propose to host a Community Consultation meeting by the
end of 2010 to allow the applicant to present any revisions to the project coming out of
the review process and to receive further comment from the public.
Provided the applicant provides all required information in a timely manner, staff
estimate that a Final Report on the applications can be completed by mid-2011. The
applicant will also be required to submit an application for approval of a Plan of
Subdivision. Staff will encourage the applicant to make this application as soon as
possible so that the review process can proceed concurrently.
RECOMMENDATIONS
The City Planning Division recommends that:
1. Staff be directed to schedule a community consultation meeting for the lands at
3560 and 3600 Lake Shore Boulevard West together with the Ward Councillor.
2. Notice for the community consultation meeting be given to landowners and
residents within 120 metres of the site and anyone who signed in at the June 28,
2010 information meeting hosted by the local Councillor.
3. Notice for the public meeting under the Planning Act be given according to the
regulations under the Planning Act.
Financial Impact
The recommendations in this report have no financial impact.
Pre-Application Consultation
Three pre-application consultation meetings were held with the applicant to gain an
understanding of the proposal, provide preliminary feedback and discuss complete
application submission requirements. At these meetings, the applicant was considering a
high or mid-rise building at the north end of the property adjacent to the railway corridor,
a linear park adjacent to the railway corridor, stacked townhouses internal to the site and
mid-rise buildings along Lake Shore Boulevard West. Since these meetings, the
applicant has decided not to pursue a high or mid-rise building at the north end of the
property, adjacent to the railway corridor. As well, measures such as temporary turning
circles have been incorporated into their proposal to allow the development to proceed
independently of its neighbours.
The ward Councillor held a public information meeting on June 28, 2010 at which
approximately 115 people were in attendance. The applicant made a presentation on their
proposal at this meeting. Both the applicant and Planning staff were available to answer
questions and listen to the ideas, comments and concerns expressed.
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Matters of interest at these meetings included the location and shape of the proposed
park; new road layout and connections to Lake Shore Boulevard West and the areas to
the east and west; phasing and co-ordination with neighbouring property owners to the
east and west and Brewers’ Retail, which occupies a site in the middle of the Lake Shore
Boulevard frontage of the site; the height of the mid-rise buildings proposed for the Lake
Shore Boulevard West frontage including their design and whether or not they should
include a commercial component on the first floor; traffic and parking; the implications
of any contamination found on site; and orientation of the townhouse blocks. These and
other issues identified by staff are discussed later in this report.
ISSUE BACKGROUND
Proposal
This application proposes the redevelopment of the former Arvin Meritor site, now
vacant, at 3560 and 3600 Lake Shore Boulevard West with a residential development of
approximately 550 units totalling 44,250 square metres of gross floor area (GFA). The
density across the site would be slightly over 1.0 FSI. The lot coverage would be
approximately 28% (Attachment 8). It is estimated that this development would provide
housing for approximately 1,000 residents.
The proposal includes mid-rise apartment buildings along the Lake Shore Boulevard
West frontage with parking to be provided in a combination of surface and underground
facilities (Attachments 3A and 3B). The applicant has indicated in their submission that
the incorporation of retail/commercial uses on the ground floor is subject to further
evaluation of market demand. As well, these buildings are being shown in the
application at up to 8 and 12 storeys in height. However, the applicant has indicated that
they have not yet made a final determination on maximum heights for these buildings and
are proposing flexibility in the implementing zoning by-law to accommodate a range of
building heights. The balance of the residential component will consist of approximately
200 ground-related and stacked townhouses arranged along a new public road system.
Parking will be provided below the townhouses, with over 600 parking spaces throughout
the development.
Canadian National Railway (CN) policy requires dwelling units to be set back from the
rail corridor by at least 30 metres. This 30 metre setback must also contain a berm to
protect from a possible derailment. This setback is included in the proposal.
A new linear park is proposed for the site, along and immediately adjacent to the railway,
which would include the required 30 metre rail corridor setback as well as additional
adjacent land to make up the required parkland contribution under the Alternate Parkland
Dedication Rate of 15% of total land area.
Site and Surrounding Area
The 4.33 hectare site is irregularly shaped and runs from frontage on Lake Shore
Boulevard West to the CN tracks to the north. A stand-alone Brewers’ Retail store, with
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its parking and loading facilities, interrupts the site’s 133 metre frontage on Lake Shore
Boulevard West and is not part of the application. (Attachment 1) The site rises
gradually from Lake Shore Boulevard West to the CN tracks with a berm along the
northeast portion of the property and a low retaining wall along the rail corridor.
The site has been used by industrial concerns since 1942. The most recent occupant was
the auto parts manufacturer Arvin Meritor. All of the buildings on the site have recently
been demolished. The site will be remediated as required as part of this development
proposal.
The properties to the west contain operating industrial concerns, including an oil
processing plant operated by Castrol Canada. West of these industries are a church and
elementary school. A car dealership abuts the site to the east. East of the dealership is
low-rise, low-density residential development. To the south, across Lake Shore
Boulevard West, are 2 and 3-storey main street style buildings with retail at grade and
apartments above. There is also a 4 and a 7-storey apartment building just east and west
of the site respectively. To the south of the buildings fronting on Lake Shore Boulevard
West is a residential neighbourhood of low-rise, low-density houses and small apartment
buildings. The north side the property is bordered by the CN tracks. Industrial buildings
are located across the tracks to the north. (Attachment 1)
Provincial Policy Statement and Provincial Plans
The Provincial Policy Statement (PPS) provides policy direction on matters of provincial
interest related to land use planning and development. The PPS sets the policy
foundation for regulating the development and use of land. The key objectives include:
building strong communities; wise use and management of resources; and, protecting
public health and safety. City Council’s planning decisions are required to be consistent
with the PPS.
The Growth Plan for the Greater Golden Horseshoe provides a framework for managing
growth in the Greater Golden Horseshoe including: directions for where and how to
grow; the provision of infrastructure to support growth; and protecting natural systems
and cultivating a culture of conservation. City Council’s planning decisions are required
to conform, or not conflict, with the Growth Plan for the Greater Golden Horseshoe.
Staff will review the proposed development for consistency with the PPS and for
conformity with the Growth Plan for the Greater Golden Horseshoe.
Official Plan
Site and Area Specific Policy No. 23 (SASP 23) applies to all of the industrial lands north
of Lake Shore Boulevard West and south of the CN rail corridor, between west of Thirty
Second Street and Brown’s Line (a total of 17 hectares), and includes the 4.33 hectare
site that is the subject of this application. SASP 23 evolved from the Central/Western
Lake Shore Area Secondary Plan which was approved in 1993 as part of the former City
of Etobicoke Official Plan. It envisioned the area’s eventual transformation to a
residential and/or mixed-use area. (Attachment 6) SASP 23 provides for up to 2,200
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housing units in the policy area. The approximately 550 units proposed in this
application are a proportionate share of the total allocation for SASP 23, based on land
area.
The site carries three land use designations: Mixed Use Areas, Neighbourhoods and
Parks. (Attachment 5) The Mixed Use Areas include the Lake Shore Boulevard West
frontage and lands abutting the railway corridor. Multi-unit residential, commercial and
light industrial uses to a maximum density of 2.5 FSI (3.0 if there is no residential
component) are permitted for the area along and south of the railway corridor. Mixed
uses to a maximum density of 3.0 FSI and maximum height of 6 storeys are permitted
along the Lake Shore Boulevard West frontage.
The Neighbourhoods area is in the centre of the property, and SASP 23 imposes a height
limit of 6 storeys for development within this designation.
The Parks designation is located parallel to and north of the Mixed Use Areas designation
along Lake Shore Boulevard West, between the Mixed Use Areas and Neighbourhoods
designations.
SASP 23 requires public roads to be provided before redevelopment can occur and
provides detail on the number and placement of these new roads. It also provides
direction on urban design elements that are to be applied to development of the area and
this site, including:
• maximum setback of 1.5 metres and build-to requirements of 70% along Lake Shore
Boulevard West; and,
• a gradual increase in building heights northerly from Lake Shore Boulevard West and
west from Thirty-Second Street.
Lake Shore Boulevard West is identified as an Avenue on Map 2 - Urban Structure of the
Official Plan.
The proposal will be evaluated against these and all other applicable Official Plan
policies.
Zoning
The property is zoned I.C1 (Industrial Class 1) under the former City of Etobicoke
Zoning Code. This classification permits a limited range of industrial and ancillary uses.
(Attachment 7)
Although the Lake Shore Boulevard West frontage of the site was studied as part of the
“Lake Shore Boulevard West: Brown's Line – Twenty-Fourth Street Avenue Study”,
Council did not apply the Avenue zoning (C1-AV) that resulted from this study to the
industrial zoned properties west of Thirty Second Street and subject to SASP 23,
including this property. The rest of the Avenue study area did receive a C1-AV zoning
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under By-law 1055-2004, including the south side of Lake Shore Boulevard West in this
location. (Attachment 7)
In addition to the policies of SASP 23, staff will consider the findings of the Avenue
Study and the development standards in the C1-AV zoning by-law in the review of this
application due to their proximity to the site and because these industrial sites may
eventually be incorporated into the Avenue zoning.
Site Plan Control
The project is subject to Site Plan Control. An application has not yet been submitted.
Tree Preservation
The site contains two public and two private trees that fall under the City’s tree protection
by-laws. The applicant has submitted an Arborist’s Report which will be reviewed by
Urban Forestry staff.
Reasons for the Application
The proposal shows similar land uses as provided for in SASP 23 but in different
locations, therefore requiring an amendment to the Official Plan. (Attachment 3) In
addition, the proposal does not conform to the policy on building heights contained in
SASP 23.
To permit this development the OPA application proposes to amend all of the lands
subject to SASP 23 by allowing for flexibility regarding the location of parkland and
modifying policies which specify building heights as follows:
• Incorporating policy modifications which will allow for an east-west linear park
to be located anywhere in the SASP 23 policy area north of the Mixed Use Areas
designation along Lake Shore Boulevard West. In the event that the parkland is
provided in a location other than that currently shown in SASP 23 (just north of
the Lake Shore Boulevard West fronting strip), then the location currently shown
could be developed as if it were designated Neighbourhoods.
• Removing all references to building height and height limitations from SASP 23,
with the exception of the 6 storey limit on low-rise apartments in the
Neighbourhoods designation. It is proposed that height limits would be
established in site specific Zoning By-laws.
It is important to note that the OPA application proposes that SASP 23 be amended for all
of the lands within the policy area, not just the development site. This proposed approach
has merit given that the pattern of development approved for this site will influence the
ultimate build out of other properties in the 17 hectare policy area. This approach will be
further evaluated by City staff and discussed with impacted landowners and community
members through the application review process.
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The existing zoning does not permit residential or commercial development of the type
proposed, therefore a zone change application has been submitted.
The proposal will also require an application for approval of a Draft Plan of Subdivision
as new public streets are being created. The applicant advises that this application will be
submitted when review of the zone change application is further advanced.
COMMENTS
Application Submission
The following reports/studies were submitted with the application:
Plan of Survey
Site Concept Plan
Floor Plans and Elevations for Townhouse Blocks
Sun/Shadow Study
Landscape Master Plan
Tree Inventory Plan
Planning Rationale including Community Services and Facilities Study
Transportation Considerations Study
Stage 1 Archaeological Assessment
Preliminary Environmental Noise Feasibility Study
Phase I Environmental Site Assessment
Supplemental Phase II Environmental Site Assessment
Functional Servicing Report including Storm Water Management Report
Notification of Incomplete Application was issued on June 25, 2010 which identified the
outstanding material required for a complete application submission as follows:
• Floor plans and elevations for the apartment buildings proposed for the Lake
Shore Blvd. West frontage and
• full information regarding the Toronto Green Standard.
This material was subsequently submitted.
As a result of the initial circulation of the material submitted, commenting agencies have
identified additional material which will be required before the application can be
deemed complete. A second Notification of Incomplete Application was issued on July
15, 2010 which identified the remaining outstanding material required for a complete
application submission as follows:
• Underground parking plans for the townhouse and mid-rise blocks in order to
determine compliance with parking requirements.
Issues to be Resolved
Community Planning staff have reviewed the submission and have circulated the plans
and studies to other City divisions and agencies. Staff will continue to review and
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discuss with the applicant the issues as summarized below, plus any others that may be
identified through further review, agency comments and the community consultation
process.
Residents who have commented are generally supportive of redevelopment of the site and
are of the opinion that this will provide a needed “stimulus” for the area. Specific
comments made on certain aspects of the application are noted below and elsewhere in
the report.
Official Plan Designations and SASP 23
The amendments proposed to SASP 23 would apply to the whole of the SASP 23 area
and would include and impact lands that are not subject to this application or under the
authority of the applicant. They would change the results of the study conducted in the
early 1990s and reviewed in the formulation of the new Toronto Official Plan in the early
2000s, especially with regard to maximum building heights. Consultation with affected
landowners within SASP 23 and the community as well as consideration of and
consultation on the potential broader implications that could result from this application
require further review and evaluation.
The development proposal itself will be evaluated against all the relevant provisions of
the Official Plan.
Location of Proposed Park
The applicant is proposing a linear park adjacent to the rail corridor. The conceptual park
area is mostly within the 30 metre rail corridor setback. The applicant cites the
advantages that the proposed linear park could have in terms of connectivity with
neighbouring sites and the opportunity to create a linear park system with other
recreational facilities and schools in the area. (Attachment 1)
During the pre-application process Parks staff indicated some reservations about a linear
park paralleling the railway tracks along the north side of the property. Concerns were
expressed especially about the usability of the area which would contain the crash
protection berm in the 30 metre setback. The need for the park contribution from this
development to work with land dedications from the neighbouring sites in SASP 23
which may develop in the future will also be a consideration
Comments at the community meeting and in communications from the public received to
date on the application are mixed on the matter of the park location, with some
supporting a linear park and others supporting a more centrally located park. Further
review and consultation is needed with the applicant, the community and Parks staff to
refine the functionality and location of the park.
Access, Roads, Traffic and Parking
SASP 23 calls for a minimum of three connections to Lake Shore Boulevard West, which
are shown in the concept plan for SASP 23. (Attachment 3) It is unknown when the
property owners to the east and west may decide to redevelop their properties and the
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timing is potentially long-term. This makes the availability of the other two access points
on the neighbouring properties uncertain.
Planning and Transportation staff will review the applicant’s proposed plan with regard
to requirements for public road connections, in particular the need for full access to Lake
Shore Boulevard West at Long Branch Avenue (a signalized intersection). This
discussion will be conditioned by the fact that the Brewers’ Retail site potentially impacts
the ability to achieve a standard (non-offset) intersection at Long Branch Avenue. The
applicant has advised that they have initiated discussion with Brewers’ Retail on this
matter. Staff will work with the applicant to ensure that the public road network provides
adequate, safe access to the development, and this will include consideration of whether
the SASP 23 area road network should connect to the existing residential streets to the
east, and if so, how.
As well, possible impacts on the existing neighbourhood from traffic and parking demand
generated by the new development will be evaluated and mitigation measures, if
necessary, discussed with the applicant.
A land dedication of 1.7 metres for road widening is required along the Lake Shore
Boulevard West frontage. Also, as development on the site may precede the abutting
properties, temporary turning circles may be required on internal roads wherever they
may dead-end.
Several members of the public have commented that the grid street pattern proposed
would be monotonous and not provide a lively, pedestrian-oriented environment. City
staff will review the proposed road pattern both on the development site and in the SASP
23 area to determine its practicality and conformity with the city-building policies of the
Official Plan.
Impact on Existing Industry
Ministry of the Environment (MOE) Guidelines set out a framework for ensuring
compatibility between proximate land uses (rail and stationary uses such as industrial
establishments) in relation to land use approvals under the Planning Act, especially with
regard to noise. Planning staff will review the material submitted to ensure that existing
industry is not negatively impacted by the creation of a new residential neighbourhood.
Similarly, the proposed development must incorporate measures to mitigate noise and
other impacts from neighbouring industrial and commercial uses sufficiently to meet
MOE standards.
Contamination
Portions of the site are contaminated with residues from previous industrial land uses.
They will be remediated by the applicant to MOE standards. Development Engineering
staff will ensure land to be dedicated to the City for roads and parks meets City standards
for remediation.
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Height and Density
The proposed maximum building heights and densities currently shown are greater than
other buildings in the neighbourhood. Comments received on this issue from residents
and interested parties so far have been mixed but tend to express concern about the
possibility of 12 storey buildings on Lake Shore Boulevard West.
Community Planning staff will review and evaluate the proposal for consistency with
Official Plan policies, the Design Criteria for Mid-Rise Building Guidelines and the Infill
Townhouses Design Guidelines, including an assessment of the appropriateness of the
proposed height, density and built form for the site and the SASP 23 area.
Staff will assess the impacts of the density and heights on the pedestrian environment,
streetscape, privacy and the creation of shadows on neighbouring properties and the
public realm. Review of the height and density will be informed by the “Lake Shore
Boulevard West: Brown's Line – Twenty-Fourth Street Avenue Study” completed in
2004 and the Zoning By-law which resulted from it which limits development in the C1-
AV zone to 6 storeys. SASP 23 also provides some direction on setbacks, heights and
massing for this property
In addition, other nearby Area Specific Official Plan Policies may be useful in assessing
the proposal. For example, Site and Area Specific Policy No. 21 (SASP 21) applies to
the south side of Lake Shore Boulevard West across from the development site and the
north side of Lake Shore Boulevard West east of the site. It limits development to 6
storeys but does permit consideration of additional height in areas where lot depths
exceed 35 metres.
Urban Design
The applicant is proposing that flexibility be built into a site specific zoning by-law for
their site so that development can respond to market forces and any unanticipated
outcomes of the remediation process. More specifically, the desire is to maintain
flexibility in maximum building heights for the buildings along the Lake Shore
Boulevard West as well as for any requirements for commercial uses on the first floor of
these buildings.
Many residents have commented that they feel non-residential uses on the ground floor
are important to maintain the integrity of the existing shopping strip. If considered
appropriate, the zoning by-law can provide flexibility to the applicant on the inclusion of
retail or other non-residential uses on the first floor of the Lake Shore Boulevard West
frontage.
The applicant has indicated the maximum heights they consider feasible for the buildings
along Lake Shore Boulevard West are 8 and 12 stories. Recommendations in the Final
Staff Report will address maximum and minimum heights throughout the site.
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Planning staff will review the proposal against the Urban Design Guidelines for Infill
Townhouses, the Design Criteria for Mid-Rise Building Guidelines, the Lake Shore
Boulevard West Urban Design Guidelines, the design guidelines in SASP 23 and all other
relevant urban design guidelines and Official Plan policies. Particular attention will be
given to the mix of housing types proposed, the impacts of wind, the orientation of the
townhouse blocks to the new streets and the location of the residential parking.
Infrastructure
The applicant has submitted a Site Servicing Report. City staff will review this study to
ensure that there is adequate water and sewer capacity to support the proposed
development. Conformity with the DIPS policy, as it relates to street dimensions, tree
planting, storm water run-off, emergency access, and other relevant infrastructure
elements will also be evaluated.
Solid Waste Collection
How solid waste will be stored and set out for pick up, especially in the townhouse
blocks, will be reviewed by Planning and Development Engineering staff to ensure a
practical and visually appealing arrangement is provided.
Section 37
The Official Plan contains policies pertaining to the provision of public benefits should
Council grant increased height and density for new development, pursuant to Section 37
of the Planning Act. Community Planning staff will discuss with the applicant and the
local councillor how these policies will be applied and identify possible community
benefits.
Toronto Green Standard
The Toronto Green Standard (TGS) is a tool to implement the broader environmental
policies of the Official Plan. Several of the natural environment policies of the Official
Plan encourage green development. These policies are geared to reduce the negative
impacts of development on the natural environment through practices such as improved
stormwater management, water and energy efficiency, and waste reduction and recycling.
These policies also promote development that enhances the natural environment and
support green industry.
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The TGS Checklist has been submitted by the applicant and is currently under review by
City staff for compliance with the Tier 1 performance measures.
CONTACT
Brian Gallaugher, Senior Planner
Tel. No. (416) 394-8230
Fax No. (416) 394-6063
E-mail: [email protected]
SIGNATURE
_______________________________
Gregg Lintern, MCIP, RPP
Director, Community Planning
Etobicoke York District
ATTACHMENTS
Attachment 1: Context Plan
Attachment 2: Site Plan – Development Site
Attachment 3: Concept Plan – SASP 23
Attachment 4A: Elevation – 12-Storey Apartment (Lake Shore Boulevard West)
Attachment 4B: Elevation – 4-Storey Apartment (Lake Shore Boulevard West)
Attachment 4C: Elevation – Townhouses
Attachment 5: Official Plan - Site
Attachment 6: Official Plan - SASP 23
Attachment 7: Zoning
Attachment 8: Application Data Sheet
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Attachment 1: Context Plan
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Attachment 2: Site Plan
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Attachment 3: Concept Plan – SASP 23
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Attachment 4A: Elevation – 12-Storey Apartment (Lake Shore Boulevard West)
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Attachment 4B: Elevation – 4-Storey Apartment (Lake Shore Boulevard West)
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Attachment 4C: Elevation – Townhouses
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Attachment 5: Official Plan Designations – Site
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Attachment 6: Official Plan Designations
Site and Area Specific Policy (SASP) No. 23
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Attachment 7: Zoning
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Attachment 8: Application Data Sheet
Application Type Official Plan Amendment & Application Number: 10 193543 WET 06 OZ
Rezoning
Details OPA & Rezoning, Standard Application Date: June 10, 2010
Municipal Address: 3560 and 3600 LAKE SHORE BLVD WEST
Location Description: CON 1 FTL PT TWP LOT 9 RP 64R3390 PARTS 1 & 2 **GRID W0605
Project Description: Proposed amendments to the Official Plan and Zoning By-law to permit a mixed-use
residential development (apartments and townhouses). Retail is contemplated for a portion
of the property provided that market conditions warrant additional commercial uses in the
area.
Applicant: Agent: Architect: Owner:
DIAMONDCORP LAKESHORE EMPC TWO
LIMITED
PLANNING CONTROLS
Official Plan Designation: Neighbourhoods, Mixed Use Site Specific Provision: SASP #23
Area, Parks
Zoning: I.C1 – Industrial Class 1 Historical Status: N/A
Height Limit (m): N/A Site Plan Control Area: Yes
PROJECT INFORMATION
Site Area (sq. m): 43341.8 Height: Storeys: 12
Frontage (m): 132.3 Metres: 37
Depth (m): 308.6
Total Ground Floor Area (sq. m): 12361.26 Total
Total Residential GFA (sq. m): 43455.45 Parking Spaces: 628
Total Non-Residential GFA (sq. m): 795 Loading Docks 0
Total GFA (sq. m): 44250.45
Lot Coverage Ratio (%): 28
Floor Space Index: 1.02
DWELLING UNITS FLOOR AREA BREAKDOWN (upon project completion)
Tenure Type: Condo Above Grade Below Grade
Rooms: 0 Residential GFA (sq. m): 43455.45 0
Bachelor: 25 Retail GFA (sq. m): 795 0
1 Bedroom: 142 Office GFA (sq. m): 0 0
2 Bedroom: 301 Industrial GFA (sq. m): 0 0
3 + Bedroom: 0 Institutional/Other GFA (sq. m): 0 0
Total Units: 538
CONTACT: PLANNER NAME: Brian Gallaugher, Senior Planner
TELEPHONE: (416) 394-8230
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Staff report for action – Preliminary Report – 3560 and 3600 Lake Shore Blvd West 23
