CITY CLERK

Clause embodied in Report No. 7 of the Midtown Community Council, as adopted by the Council of the City of at its meeting held on October 2, 3 and 4, 2001.

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Final Report - Bayview Institutions Context Plan (Don Valley West - Ward 26)

(City Council on October 2, 3 and 4, 2001, adopted this Clause, without amendment.)

The Midtown Community Council recommends adoption of the following report (August 27, 2001) from the Director, Community Planning, North District:

Purpose:

This report recommends Principles and Guidelines to guide consideration of future development proposals for lands included within the Context Plan area.

Financial Implications and Impact Statement:

There are no financial implications resulting from the adoption of this report.

Recommendations:

It is recommended that City Council:

(1) adopt the Context Plan Principles and Guidelines as an Appendix to the Official Plan for use as an implementation tool to guide the review of future development applications;

(2) ensure that road access to the Canadian Institute for the Blind, the Bloorview MacMillan Centre, and the Toronto Rehabilitation Institute Rumsey Centre is provided by a public right-of-way to be established between and Rumsey Road by a common plan of subdivision, whereby the CNIB and the Bloorview MacMillan Centre will convey a 20 metre wide right-of-way to the City;

(3) ensure that road access between Bayview Avenue and Rumsey Road will be restricted by a controlled access gate to be located between the stub end of Rumsey Road and the future public right-of-way. The block of land on which this gate will be erected will form part of the common plan of subdivision and be conveyed to the City for that purpose; and

(4) ensure that residents and adjacent landowners have opportunity to be involved in any future applications for site plan through a formal program of community consultation. Toronto City Council 2 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30

Background:

Midtown Community Council, at its January 17, 2001 meeting, directed staff to undertake a Context Plan in conjunction with the continued review of the rezoning application by the Bloorview MacMillan Centre. The purpose of the Context Plan was to address the road network, parking, servicing, built form, open spaces and pedestrian linkages for all 5 institutional properties which share the larger campus with the Bloorview MacMillan Centre.

A report recommending the built form, massing, and footprint of the proposed Bloorview MacMillan Centre was considered by Midtown Community Council on July 10, 2001. The Final Report on the rezoning application by Bloorview MacMillan will be before Midtown Community Council when details of implementing the restricted road access are finalized.

Proposal

The Bloorview MacMillan Centre submitted an application for rezoning to the City in August 2000. The application was premised on a new building, approximately 3 times higher than the RM3 zoning permitted and relying on access from a private driveway owned by the Canadian National Institute for the Blind, (CNIB). In considering this proposal, it became apparent that the application could not be looked at in isolation from the surrounding land uses. As well, during the past year, the CNIB has initiated a review of the potential redevelopment of its site. It was therefore recommended that an overall context plan for all the institutional lands would provide a useful framework for reviewing individual development applications.

Site and Surrounding Area

The Context Plan study area is 19 hectares or 47 acres in size. The study area is bounded by Bayview Avenue to the west, the Burke Brook ravine to the north, Sunnybrook Park to the east, and a low density residential neighbourhood to the south. The Toronto and Region Conservation Authority has identified the ravine, including a setback from stable top of bank of 10 metres as an important Environmentally Sensitive Area, (ESA).

Besides the CNIB and the Bloorview MacMillan Centre (BMC), the Context Plan area is also home to the Toronto Rehabilitation Institute (TRI) Rumsey Centre and Lyndhurst Hospital, and the Centre for Addiction and Mental Health (CAMH). Currently, a private driveway from Bayview Avenue owned by the CNIB, provides access to that institution as well as Bloorview MacMillan, and the Toronto Rehabilitation Institute Rumsey Centre. These institutions along with the TRI Lyndhurst Hospital and the Centre for Addiction and Mental Health also take access from local streets located in the Leaside neighbourhood to the south: Rumsey Road, Sutherland Drive, and Brentcliffe Road.

Official Plan

The Context Plan area is designated General Institutional which is intended to accommodate major institutions serving the broader City. The northern edge is designated Valley Open Space and identified within the former City of ’s Valleyland Impact Zone which prohibits buildings within a 10 metre setback from the top of bank. A small section south of the access Toronto City Council 3 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30 road on Bayview Avenue and within the former Borough of East York, is designated for housing.

Permitted uses in the General Institutional land use district include health, educational, religious, and government uses. Ancillary uses at an appropriate scale intended to serve the needs of the primary institutional facility may also be permitted. In the case of major health care institutions, ancillary and complimentary uses include retail, office, educational and conference facilities, hostel, day care, research, limited health care manufacturing and various health care programs. In considering new or expanded institutional uses, Council shall be guided by policies set out in Part C.6, Section 3.0 of the Official Plan which are intended to limit the physical impact any development would have on adjacent uses and roads.

Two site specific Official Plan Amendments also cover the site: C.9.144 applies to the CNIB site and C.9.145 applies to the 3 institutions to the east: Bloorview MacMillan, Toronto Rehabilitation Institute, and the Centre for Addiction and Mental Health. Both site specific amendments give recognition for the need to provide flexibility for use of these lands to meet changing health care demands by permitting a wide range of uses and programs associated with the principle use of the lands. Both policies also gives recognition to the institutions sharing resources and facilities including, but not limited to, shared access from Bayview Avenue and shared parking, subject to the approval of the Board of Trustees of each institution.

Zoning By-law

The majority of the subject area, located in the former City of North York, is zoned RM3, which permits semi-detached, duplex, townhouse and apartment forms of residential as well as hospital, nursing home and religious institutions. The small area south of the access road in the former Borough of East York, is zoned R3A permitting apartment and institutional buildings.

Community Consultation

Transportation options and urban design principles were presented to the community at a meeting held March 5, 2001 and were included in a status report presented to Midtown Community Council April 3, 2001. Further refinements were made as a result of a series of meetings with a stakeholders group which included representatives of the City, Toronto and Region Conservation Authority (TRCA), four of the five institutions, and the residents. The CNIB decided not to participate in further stakeholder group meetings, but were kept informed by staff on an on-going basis of the process and its outcomes. Correspondence from the landowners and North Leaside Residents Association outlining their interests is found in Attachment 4.

Agency Circulation

The draft Context Plan was circulated to all appropriate agencies and City Departments. As well, representatives of other departments participated in the stakeholder group meetings. Responses received have been used to assist in formulating the Plan. Toronto City Council 4 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30

Comments:

Transportation and Access

One of the main challenges facing potential redevelopment of the Context Plan area is accommodating the traffic generated by the new and/or expanded uses. Three primary issues arise out of the prospect of redevelopment of these institutional properties:

1. Traffic impact on the Leaside community to the south of the institutions.

• With the exception of the CNIB lands, the institutions take their primary access and address from the north-south local streets located in the residential neighbourhood to the south. Traffic increases on the local streets have the potential to affect the amenity of the residential neighbourhood.

• The current shared access provides an uncontrolled cut-through route which encourages traffic infiltration through the North Leaside neighbourhood.

2. Coordinated access to Bayview Avenue and the legal status of a shared access road.

• A coordinated, formalized access scheme serving the institutional lands is key to mitigating the impact of increased traffic on the residential neighbourhood to the south.

• The access road is a private road owned by CNIB but used by Bloorview MacMillan and Toronto Rehabilitation Institute Rumsey Centre as well as the general population. Staff recommend that a public road be created through a plan of subdivision.

3. Capacity constraints at the intersections of Bayview Avenue and the access road and at the Bayview Avenue/Eglinton Avenue East intersection.

• Signalization of the access road at Bayview Avenue may be required to support any comprehensive redevelopment of these lands – especially if access to local streets is restricted. Traffic control signals should be warranted based on city standards.

• The Bayview Avenue / Eglinton Avenue intersection is already approaching capacity during peak hours. Reducing the number of peak hour trips will therefore be a key priority.

• Bayview Avenue /Eglinton Avenue traffic volumes are affected by the access options chosen for the institutions: the more access is restricted from the local streets, the more traffic will need to use the intersection and the more drivers will be tempted to use other streets as a shortcut.

• Works and Emergency Services will not support Rumsey Road as the only access to the expanded Bloorview MacMillan Centre, (see attached comments).

In order to address these issues, transportation principles were developed to aid in evaluating potential access arrangements and their implications on the day to day operations of the Toronto City Council 5 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30 institutions, the neighbourhood to the south, and on the wider road network and community. Subsequently, a number of potential access schemes were prepared to generate discussion of long and short term options for accessing the Context Plan area.

Access Options

Five potential access options were evaluated during the course of the Context planning process, (see Attachments 2 and 3). The options ranged from continuing the status quo to the introduction of a new public road serving all of the institutions:

Option 1: A shared private road serving all institutions with access to local roads controlled with card access.

Option 2: A public road serving all institutions with access to local streets either open or closed except for pedestrians, bicycles, and emergency vehicles.

Option 3: A road with an east - west split. The west road serving CNIB, Bloorview MacMillan, and the TRI Rumsey Centre with access to Rumsey Road controlled by card access gates. The east portion of the access road would serve TRI Lyndhurst Hospital and the CAMH, connecting Sutherland Drive to Brentcliffe Road. These roads could be public, private, or unassumed.

Option 4: No shared access – all institutions use their own individual means of access.

Option 5: A ravine road, which involves utilizing the TRCA road extension of Sutherland Drive into the ravine, connecting with Sunnybrook Hospital through Sunnybrook Park.

The stakeholders group preferred Option 3 East - West Split with controlled access to Rumsey Road, with a modification. Specifically, the scheme proposes a shared access road extending from Rumsey Road west to Bayview Avenue which will serve the CNIB, the Bloorview MacMillan Centre and the TRI Rumsey Centre. However, the “east split” portion of the road joining Brentcliffe Road to Sutherland Drive shown in Option 3 is not favoured by the TRI and the CAMH at this time. The option has therefore been modified to remove this as a formal element. In the event of future redevelopment, it is recommended that the access road be extended eastward, with either restricted or closed access to local roads.

Option 3, with the modification, is recommended because it achieves many of the Development Principles established by the stakeholders, (see Bayview Institutes Context Plan – Attachment 5). Specifically, Option 3 eliminates the cut-through traffic currently using the access road; it distributes traffic among two access points; restricts buses, service vehicles, taxis and other “outside” vehicles to the Bayview Avenue entrance, acts as a direct route to transit stops on Bayview Avenue; and provides flexibility for future extensions or public assumption. Guidelines for the ultimate design of the shared access road are contained in the Context Plan Development Guidelines. A detailed evaluation matrix listing positive and negative features of each of the options is presented in Attachment 3.

It is proposed that the Rumsey Road access point be controlled by way of a card activated access gate on the existing Bloorview Macmillan Centre property. The Rumsey Road access is intended Toronto City Council 6 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30 to provide access and egress to passholders destined for the Bloorview MacMillan Centre, the CNIB, and the TRI Rumsey Centre only. Careful attention will need to be given to the placement of the Rumsey Road access control gates to ensure that queuing on Rumsey Road does not block access to adjacent properties or the intersection with Glenvale Boulevard. This scheme relies on the fence separating the parking lots of the two TRI institutions to remain in place in order to prevent increased traffic on Rumsey Road.

Implementation of the preferred option relies on the two affected landowners: the CNIB and the Bloorview MacMillan Centre agreeing to enter into a plan of subdivision with the City to establish a 20.0 metre wide public right-of-way. This would be widened to 23 metres at the intersection with Bayview Avenue to provide for separate westbound left and and right-turning lanes. A block between the end of Rumsey Road and the public right-of-way would be conveyed to the City of Toronto for the purpose of restricting access whereby the City would grant a limited easement for access to certain users based on terms and conditions satisfactory to the City.

It is intended that the current access road would be built to municipal standards, but until such time as required to be assumed by the City, would function as an unassumed travelled public road allowance. The subdivision agreement would identify and secure horizon dates, up-front and recoverable costs, encroachments, indemnification, and intent to protect development rights attributable to the right-of-way through site specific zoning bylaws.

Although TRI would be an affected party as a result of the controlled access onto Rumsey Road, and has easements on the future right-of-way and across the eastern flank of the BMC property, the TRI would not be a party to the Subdivision Agreement since it would not be conveying any lands to the City for the road allowance. Instead, it is anticipated that BMC and perhaps CNIB would wish to enter into a separate agreement with TRI to deal with cost sharing until the public road is assumed by the City. As well, such an agreement would ensure TRI’s co-operation with respect to the conveyance of the Rumsey Road controlled access block to the City and the creation of the access easement on terms and conditions satisfactory to the parties.

In the event of future development applications, the public right-of-way could be extended eastward to serve the sites now occupied by the TRI Lyndhurst Hospital and CAMH.

Through conditions of rezoning and site plan agreements, developments will be expected to implement Transportation Demand Management measures to reduce peak hour vehicular trips. Carpool programs, shuttle buses to rapid transit stations, parking supply controls and pricing, and employer subsidised transit fares are among the measures that institutional landowners will be asked to employ to reduce the traffic generated by the institutions and its impact on the community and the environment. Shared parking among the institutions would also be recommended to reduce the expanse of surface parking areas for each institution.

Servicing

Currently, the 5 institutions are serviced in a variety of ways from both the former municipalities of North York and East York. Services generally are to the south although the Sunnybrook sub-trunk sanitary sewer which serves one of the CNIB buildings is located in the Burke Brook Toronto City Council 7 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30 ravine and storm outflows to the ravine appear on some of the properties. There is also a 300.0 mm water main running south on Bayview Avenue to just past the Burke Creek but it does not connect to any of the institutions. Instead both water and sanitary service is shared across the CNIB and Bloorview MacMillan site, while the TRI has connections to water and combined sanitary/storm sewer located on Glenvale Boulevard. The CAMH has water connections to Glenvale Boulevard as well but links into the West Don Trunk sanitary line.

Residents have consistently raised concerns with respect to further development of the subject area not increasing flows to the existing combined sanitary/storm sewers in Leaside and Works and Emergency Services (WES) recognizes that properties downstream from the Bayview Context Plan area are subject to flooding during storms. As a result, to accommodate future development, WES recommends connections to a shared common sanitary line along the south boundary line and feeding directly into the West Don Trunk, or individual or shared connections to the Sunnybrook sub-trunk. WES is currently undertaking two studies which should be completed by the end of this year: Wet Weather Flow Management Master Plan to address the detrimental impacts to the City watercouses from combined sewer overflows and the Basement Flooding Investigation and Assessment Report to identify short and long term measures to mitigate flooding problems.

To provide a more efficient water supply for the expanded needs of these institutions, it is recommended that the 300 mm water main on Bayview be extended south to serve the institutions or the current 150 mm feed on Rumsey Road be replaced with a 300 mm diameter water main to connect to Broadway Avenue to the south.

The TRCA will not accept any further storm flow into the ravine, and therefore storm detention systems, either individually, or shared among two or more landowners will need to be accommodated as redevelopment occurs.

Urban Design

Urban design principles and guidelines were developed within the context of protecting and enhancing the positive elements of the existing setting. These elements include the existing green campus, low rise buildings, and openess between the institutions, the surrounding community, and the ravine. It is important to note that currently, patients and residents freely walk between institutions, the neighbourhood, and the ravine. Some of the institutional facilities are publicly accessible. Many residents also use the TRCA walkway through the Toronto Rehabilitation Institute site to gain pedestrian and bicycle access to Sunnybrook Park.

In recognition of the need to accommodate institutional expansion, and possible other uses, many of the urban design principles and guidelines have been developed to minimize the effect of new development on adjacent uses and homes backing onto the site. Particular concerns of residents besides traffic infiltration, relate to loss of privacy from overlook of taller buildings into their homes and rear yards. Careful attention therefore has been paid to future building setbacks, height and massing. Landscaping is also an important element to enhance privacy and provide a buffer between backyards and the access road, parking areas, and between existing institutions and new development. To give added comfort to residents, assurance has been given that they Toronto City Council 8 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30 can review and provide comments through a community consultation program on any site plan applications.

In addition to addressing adjacent landowner concerns, the City is interested in protecting the interests of the larger community. Toronto’s network of ravines and open spaces is considered a city wide resource providing recreational, environmental, and visual/aesthetic benefits to its citizens. These lands abut Burkes Brook ravine, a significant ESA, and Sunnybrook Park. Ensuring that new development includes provision for a continuous walkway from Bayview Avenue along the ravine edge will allow a pedestrian system stretching from , through Sherwood park right through to Sunnybrook Park. By establishing a generous setback between new development and the ravine, the ravine character, stability, and its appropriate use is facilitated. Controlling the amount of surface parking and amending the zoning bylaw to limit building coverage to a maximum one quarter of the site will ensure the “green campus” setting remains.

Toronto and Region Conservation Authority

The Toronto and Region Conservation Authority (TRCA) owns the road extension from Sutherland Drive into Burke Brook ravine and through to Sunnybrook Park. The TRCA currently has an agreement with the City of Toronto to manage the ravine. Upon reviewing development applications, the TRCA will request that applicants survey the stable top of bank in order that all lands below stable top of bank and into the valley can be conveyed into public ownership.

The TRCA has also agreed with the concept of having a continuous 5 metre wide walkway south of the stable top of bank established between Bayview Avenue and the eastern portion of the Context Plan area. Through re-zoning, there will be opportunities for the City to negotiate this conveyance while ensuring that development rights on affected tablelands will not be reduced. The TRCA recommends that should the TRCA assume ownership of the 5 metre walkway area, the existing agreement between it and the City for the ravine should be amended to incorporate the management and maintenance of the walkway. The TRCA also recommends that the southerly limit of the walkway corridor should serve as the limit of the Valley Open Space designation. The Valley Land Impact Zone which restricts development from 10 metres from stable top of bank will remain.

Heritage

Heritage Preservation Services Section has identified the tree-lined drive that accessed the former estate property and Sunnybrook Park as the defining cultural heritage landscape feature of the subject area. The most significant built heritage features are identified as the CNIB building and bridge; the Bloorview MacMillan gardens, sculptures and artworks; and the Sutherland Drive gate. As a result, Heritage Preservation Services recommends that:

• every opportunity possible should be taken to preserve the existing trees which define the original estate driveway Toronto City Council 9 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30

• the CNIB Fragrant Garden and the Bloorview MacMillan Enchanted and Spiral gardens are important elements to be considered in any future developments

• the CNIB property and bridge be listed on the City’s Inventory of Heritage Properties

• the sculptures and artwork on the Bloorview MacMillan site should be integrated into the new development

• the Sutherland Drive gateway be preserved and its existing condition monitored

• applicants for the redevelopment of any site within the Bayview Context Plan area should be required to undertake a Heritage Impact Assessment as a condition of planning approvals.

Next Steps:

1. Append the Bayview Institutes Context Plan to the Official Plan of the former City of North York.

2. Upon specific development applications, initiate site specific zoning recommendations as identified in the Development Guidelines.

3. Co-ordinate processing of plan of subdivision for the establishment of the public road and area for restricted gate access.

Conclusions:

The Bayview Institutes Context Plan, (see Attachment 5), is intended to form an Appendix to the Official Plan. It can be used as an implementation tool in the review of any future development applications. It is intended to be used in conjunction with the zoning bylaw and official plan; provide a transportation framework, assist in the determination of appropriate built form, and provide guidance in the site planning process.

Contact:

Naomi Faulkner Community Planner Phone: (416) 395-7137 Fax: (416) 395-7155 E-mail: [email protected]

(Attachments appended to the foregoing report were forwarded to all Members of the Midtown Community Council with the agenda for its meeting on September 12, 2001, and copies thereof are on file in the office of the City Clerk, North York Civic Centre.)

______Toronto City Council 10 Midtown Community Council October 2, 3 and 4, 2001 Report No. 7, Clause No. 30

The Midtown Community Council also had before it the following communications:

(i) (September 12, 2001) from Agnes Vermes, President, Leaside Property Owners Association Incorporated regarding controlling access to Bloorview MacMillan at Rumsey Road to help eliminate cut through traffic on local streets in Leaside;

(ii) (September 12, 2001) from John Lohmus, IBI Group, regarding the Bayview Institutions Context Plan Guidelines;

(iii) (September 12, 2001) from Jean Simpson, Executive Vice President and COO, Centre for Addiction and Mental Health; and

(iv) (September 12, 2001) Mark Rochon, President and CEO, Toronto Rehabilitation Institute.

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The following persons appeared before the Midtown Community Council in connection with the foregoing matter:

- Tim Bermingham, Canadian National Institute for the Blind; - Mark Rochon, President and CEO, Toronto Rehabilitation Institute and submitted a written brief; - Robert Duffield, President, North Leaside Residents’ Association Inc.; - Bryan Smith, North Leaside Residents’ Association Inc.; - Carolyn Everson, Chair of the Board of Trustees, Bloorview MacMillan Children’s Centre, and submitted a written brief; and - Henri Dekker, Centre for Addiction and Mental Health.