Davisville Village Zoning Study Preliminary Report

Transcription

1 STAFF REPORT ACTION REQUIRED Davisville Village Zoning Study Preliminary Report Date: May 22, 2015 To: From: Wards: Reference Number: Toronto and East York Community Council Director, Community Planning, Toronto and East York District Ward 22 St. Paul's SPS 00 OZ SUMMARY City Council has directed staff to review the zoning provisions for the lands known as Davisville Village generally bounded by Eglinton Avenue East to the north, Yonge Street to the west, Mount Pleasant Cemetery to the south and Bayview Avenue to the east. This report provides preliminary information for the study including a focused study area, the existing policy context, and the issues to be reviewed. The report also provides an outline of the proposed work plan for the remainder of the study. Planning staff will provide recommendations to Community Council on possible areaspecific amendments to the zoning and/or urban design guidelines as necessary. RECOMMENDATIONS The City Planning Division recommends that: 1. Staff be directed to form a community working group which will include City staff, representatives of the local ratepayers' and residents' association, and members of the Ward Councillor's office. Davisville Village Zoning Study Area Focused Study Area (Neighbourhoods) Staff report for action Preliminary Report Davisville Village Zoning Study 1

2 2. Staff be directed to schedule a community consultation meeting for the lands within the Focused Study Area together with the Ward Councillor. 3. Notice for the community consultation meeting be given via a newspaper advertisement. 4. Notice for the public meeting under the Planning Act be given according to the regulations of the Planning Act. Financial Impact The recommendations in this report have no financial impact. DECISION HISTORY At its meeting on August 25, 26, 27 and 28, 2014, City Council requested City Planning to undertake a neighbourhood zoning study of Davisville Village, with appropriate community consultation, and to report back the findings of the study with the proposed zoning changes for the neighbourhood, if appropriate, to a statutory meeting of the Toronto and East York Community Council. The Ward Councillor introduced the motion at Toronto and East York Community Council based on concerns raised by residents and the local ratepayers' and residents' association with regards to the development of new two-storey homes with integral garages, raised first floors and high rear platforms that overlook into adjacent properties. The Ward Councillor's letter to Council and additional information can be found at: ISSUE BACKGROUND Study Area Davisville Village is a neighbourhood in Midtown Toronto generally bounded by Eglinton Avenue East to the north, Yonge Street to the west, Mount Pleasant Cemetery to the south and Bayview Avenue to the east. These lands constitute the Davisville Village Zoning Study Area. This study will focus on the portion of Davisville Village (the "Focused Study Area") designated as Neighbourhoods in the Official Plan and will be looked at in two areas. Davisville Village West: the area designated Neighbourhoods in the Official Plan bounded by the south side of Soudan Avenue to the north, just east of Yonge Street to the west, just north of Davisville Street to the south and just west of the Mount Pleasant Road to the east. There are approximately 850 properties within the Davisville Village West portion of the study area. Staff report for action Preliminary Report Davisville Village Zoning Study 2

3 Davisville Village East: the area designated Neighbourhoods in the Official Plan bounded by just south of Eglinton Avenue East to the north, just east of Mount Pleasant Road to the west, the south side of Merton Street (Mount Pleasant Cemetery) to the south and Bayview Street to the east. There are approximately 2,900 properties within the Davisville Village East portion of the study area. Areas excluded from the study include lands designated as Apartment Neighbourhoods, Mixed Use Areas, Parks and Other Open Space Areas in the Official Plan. Both halves of the Focused Study Area are characterized predominantly by 2- and 3- storey detached and semi-detached houses, many of which date back to the 1920s and 1930s, on lots that are predominantly 7.62 metres (25 feet) wide. There are a total of approximately 3,750 properties within the entire area being studied. Recent Development Activity Davisville Village, like many other neighbourhoods throughout the City of Toronto, is experiencing a considerable amount of reinvestment in the form of infill housing. These new houses frequently require variances to the Zoning By-law and seek Committee of Adjustment approval. It has been observed that new construction within the neighbourhood commonly takes the form of detached houses with at-grade integral garages and two levels of living space above. There has been a growing concern that these new homes with integral garages and raised first floors are disrupting the traditional character of the area. Variances associated with this form of development often relate to a number of the following provisions in the zoning by-law: - Building height; - Front, rear and side exterior main wall heights; - Floor space index/gross floor area; - Height of the first floor; - Height of the rear platform; - Side yard setback; and - Front yard soft landscaping. The Committee of Adjustment has refused a number of recent applications, however, many of these refusals are appealed to the Ontario Municipal Board and approved in a similar form. Purpose of the Study The purpose of the study is to review the existing zoning standards for new residential development within the Focused Study Area and to provide recommendations to Community Council on possible amendments to this planning framework. Staff report for action Preliminary Report Davisville Village Zoning Study 3

4 POLICY CONTEXT Provincial Policy Statement and Provincial Plans The Provincial Policy Statement (PPS), 2014 provides policy direction on matters of provincial interest related to land use planning and development. These policies support the goal of enhancing the quality of life for all Ontarians. Key policy objectives include: building strong healthy communities; wise use and management of resources; and protecting public health and safety. The PPS recognizes that local context and character is important. Policies are outcome-oriented, and some policies provide flexibility in their implementation provided that provincial interests are upheld. 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. Official Plan The City's Official Plan designates the lands within the Focused Study Area as Neighbourhoods on Map 17 Land Use Plan. Neighbourhoods are considered physically stable areas and are made up of low scale residential uses along with parks, schools and local institutions. The stability of the physical character of Neighbourhoods is one of the keys to Toronto's success. Policies and development criteria aim to ensure that physical changes to established neighbourhoods are sensitive, gradual and generally "fit" the existing physical character. Development criteria in Section of the Official Plan state that "development in established Neighbourhoods will respect and reinforce the existing physical character of the neighbourhood, in particular: a. Patterns of streets, blocks and lanes, parks and public building sites; b. Size and configuration of lots; c. Height, massing, scale and dwelling type of nearby residential properties; d. Prevailing building type(s); e. Setbacks of buildings from the street or streets; f. Prevailing patterns of rear and side yard setbacks and landscaped open space; g. Continuation of special landscaped or built-form features that contribute to the unique physical character of a neighbourhood; and h. Conservation of heritage buildings, structures and landscapes" and that "no changes will be made through rezoning, minor variances, consent or other public action that are out of keeping with the physical character of the neighbourhood." Staff report for action Preliminary Report Davisville Village Zoning Study 4

5 Section states that: Zoning by-laws will contain numerical site standards for matters such as building type and height, density, lot sizes, lot depths, lot frontages, parking, building setbacks from lot lines, landscaped open space and any other performance standards to ensure that new development will be compatible with the physical character of established residential Neighbourhoods. The City of Toronto is in the process of conducting a Five-Year Official Plan Review. As part of this review City Planning staff has formulated draft policies for the Official Plan including new and revised policies that guide development within Neighbourhoods. At its July 8, 2014 meeting, Council adopted the report from the Chief Planner and Executive Director entitled Official Plan Review: Draft Policies for Healthy Neighbourhoods, Neighbourhoods and Apartment Neighbourhoods'. City Planning staff are currently undertaking public consultations of the basis of the draft policies and will prepare a Final Recommendation Report with a proposed Official Plan Amendment containing revised policies to the Planning and Growth Management Committee on September 3, See Attachment No. 1 for the Official Plan map. Yonge-Eglinton Secondary Plan The Davisville Village Zoning Study Area is located within the portion of the Yonge- Eglinton Secondary Plan area that is designated Neighbourhoods. A primary objective of the Yonge-Eglinton Secondary Plan is to promote development that is contextually appropriate and compatible with the existing character of the neighbourhood while maintaining and encouraging a range of housing forms and tenure suitable for family and other households. The Yonge-Eglinton Secondary Plan is currently being reviewed by an inter-divisional team led by City Planning staff. The scope of work for this phase of work, informed by consultation with area Councillors and stakeholders, includes a focus on refinements to built form policies. Community Planning staff will coordinate with the Yonge-Eglinton Secondary Plan team throughout the course of the Davisville Village Zoning Study to share findings, coordinate consultation and ensure that recommendations are complementary. See Attachment No. 2 for the Yonge-Eglinton Secondary Plan map. Zoning Former City of Toronto Zoning By-law The lands within the Focused Study Area are subject to Zoning By-law Both Davisville Village West and East are zoned Residential, R2 Z0.6, which permits a variety of residential building types, parks, schools, places of worship and home occupations. The permitted density is 0.6 times the area of the lot and the maximum building height is 9.0 metres. Staff report for action Preliminary Report Davisville Village Zoning Study 5

6 See Attachment No. 3 for the Zoning By-law map. City of Toronto Zoning By-law On May 9, 2013, City Council enacted a new city-wide Zoning By-law for the City of Toronto. Zoning By-law has been appealed in its entirety and is now before the OMB. While the By-law is under appeal, the provisions of both the former zoning by-laws and the new zoning by-law are in effect for sites that are subject to Zoning Bylaw The lands within the Focused Study Area are located in an area zoned Residential, R (d0.6) H9.0 in By-law which permits a variety of residential building types, parks, schools, places of worship and home occupations. The permitted density is 0.6 times the area of the lot and the maximum building height is 9.0 metres. See Attachment No. 4 for the Zoning By-law map. STUDY OVERVIEW Issues The key issues to be reviewed and addressed during the study include the following related to development of infill houses in Davisville Village: - Built form and streetscape character: including building height, eaves height, first floor height, and overall massing; - Side yard setbacks; - Parking; - Front yard landscaping; and - Rear deck privacy and overlook. Work Program and Timeline The area study will review planning issues within Davisville Village as generally indicated in the work program below: - Review and analyze decisions for 'tall homes' considered by the Committee of Adjustment (COA) and the Ontario Municipal Board (OMB) over the last 10 years; - Analyze the existing policy tools used to guide development within the Focused Study Area and model the information graphically, including the intent of the new city-wide Zoning By-law; - Develop a community consultation and engagement strategy including holding community meetings and working group meetings to discuss planning issues and ultimately present recommendations; - Analyze the use of area-specific amendments to the zoning by-law to guide development in the area; - Analyze the use of urban design guidelines to guide development in the area; Staff report for action Preliminary Report Davisville Village Zoning Study 6

7 - Develop draft recommendations for infill policies and/or guidelines; and - Present report outlining recommendations to Community Council. It is anticipated that the study will be completed and final recommendations will be submitted to the Toronto and East York Community Council by the first quarter of Community Planning staff propose to carry out the following work program: Action Timing Hold Community Consultation meeting Q2, 2015 Complete review of issues and the existing policy framework Q3, 2015 Draft zoning amendments / guidelines Q3, 2015 Hold additional Community Consultation meeting Q4, 2015 Revise and finalize zoning amendments / guidelines Q4, 2015 Final Report to Community Council and hold Statutory Meeting as necessary Q1, 2016 Community Consultation During the study, City staff will conduct a variety of public consultations, all aimed at soliciting public and divisional input. These consultations will take the form of community consultation meetings, walking tours, and working group meetings. The community working group will consist of City staff, representatives from SERRA (South Eglinton Ratepayers' and Residents' Association), members of the Councillor's office, and representatives from other residents' associations as necessary. Community consultation to date has included: an introductory meeting with working group representatives on February 26, 2015; a review of materials prepared by SERRA including list of issues, guiding principles, and other related correspondence; and an informal walking tour on April 30, These initial meetings and documents provided staff with invaluable insight into the perceived issues associated with new neighbourhood development and firsthand observations of this development in the context of the greater neighbourhood. Conclusions The Davisville Village Zoning Study will provide the opportunity for City Planning staff to work with the local community and the Ward Councillor to develop a vision for the neighbourhood and recommendations on appropriate tools to clarify compatible neighbourhood development within the Focused Study Area. Staff will prepare draft area specific zoning by-law amendments and/or urban design guidelines as necessary in order to address the issues that have been identified and to protect desirable characteristics of the neighbourhood. Staff report for action Preliminary Report Davisville Village Zoning Study 7

8 CONTACT Kevin Friedrich, Assistant Planner Tel. No. (416) Fax No. (416) SIGNATURE Gregg Lintern, MCIP, RPP Director, Community Planning Toronto and East York District ATTACHMENTS Attachment 1: Official Plan Attachment 2: Yonge-Eglinton Secondary Plan Attachment 3: Zoning (By-law ) Attachment 4: Zoning (By-law ) Staff report for action Preliminary Report Davisville Village Zoning Study 8

9 Attachment 1: Official Plan Staff report for action Preliminary Report Davisville Village Zoning Study 9

10 Attachment 2: Yonge-Eglinton Secondary Plan Study Area Boundary Staff report for action Preliminary Report Davisville Village Zoning Study 10

11 Attachment 3: Zoning (By-law ) Staff report for action Preliminary Report Davisville Village Zoning Study 11

12 Attachment 4: Zoning (By-law ) Staff report for action Preliminary Report Davisville Village Zoning Study 12

13 Staff report for action Preliminary Report Davisville Village Zoning Study 13

14 Staff report for action Preliminary Report Davisville Village Zoning Study 14

15 Staff report for action Preliminary Report Davisville Village Zoning Study 15