REPORT: A BLACK BUSINESS CONVERSATION ON PLANNING FOR THE FUTURE OF BLACK BUSINESSES AND RESIDENTS ON EGLINTON AVE W.
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OPEN..ARCHITECTURE..COLLABORATIVE CANADA 0.1 Acknowledgments
This report is a product of a collaboration between Black Urbanism Toronto, Studio of Contemporary Architecture, (SOCA), the Open Architecture Collaborative Canada (OACC), and allied community members and activists. The list of report authors and contributors appears below. Published July 2020
Report authors: Additional Project Contributors: Romain Baker, BUTO Ori Abara, BUTO Dane Gardener-Williams, BUTO Temi Fowodu, BUTO Anyika Mark, BUTO Cheryll Case, CP Planning Elizabeth Antczak, OACC Marveh Farhoodi, OACC Mona Dai, OACC Negar Hashemi, OACC Samuel Ganton, OACC Bronte Mutukistna, OACC Tura Wilson, SOCA Priyasha Singh, OACC Shanna-Kay Smith, OACC Aidan Gove-White, BUTO Advisor Abigail Moriah, The Black Planning Project Toronto Community Benefits Network (TCBN) Members of the Confronting Anti-Black Racism Unit, Partnerships and Accountable Circle (PAC) Andria Barrett, President, Canadian Black Chamber of Commerce (CBCC) Amanuel Melles, Executive Director, Network for the Advancement of Black Communities (NABC)
(c) Black Urbanism TO Inc. 2020
All rights reserved. No part of this publication may be reproduced, distributed, or transmitted in any form or by any means, including photocopying, recording, or other electronic or mechanical methods, without the prior written permission of the publisher, except in the case of brief quotations embodied in critical reviews and certain other noncommercial uses permitted by copyright law. For permission requests, write to the publisher, addressed”: Attention (c) Black Urbanism TO Inc. ([email protected]) 0.2 Foreword
Message from BUTO Black communities have been particularly vulnerable initiative, Black Urbanism TO partnered with Open to displacement and erasure1 due to manifestations Architecture Collaborative Canada (OACC), Black of anti-Black racism, which have ensured that the Business and Professional Association (BBPA), interests of others have always outweighed our Studio of Contemporary Architecture (SOCA), and own. Eglinton West is one of those communities. the Parkdale Neighbourhood Land Trust (PNLT), to It is no wonder then, that despite being heavily co-host a two-part Black Business Conversations influenced by successive waves of Black immigrants, consultation series on February 10 and 12, 2020. In to the extent that the neighbourhood has become these sessions Black business owners in the Eglinton synonymous with Black commerce, people, and West neighbourhood were engaged in discussion culture, there has been reluctance and even on the path that they want to take into the future. opposition to our people laying any claim to the We believe that this Black-led engagement approach area. demonstrates that members of the community are well able and equipped to plan and implement On the topic of Eglinton West, affectionately but culturally safe engagement forums to not only unofficially called “Little Jamaica”, many articles have identify issues but to also present solutions. This been written, many accounts have been given, and in sets the standard for how Black communities living most recent years, many documentaries have been in other parts of the City such as Jane and Finch can filmed to capture the story of this neighbourhood participate meaningfully in city building. before it disappears. BUTO considers it a duty to ensure that the Black The construction of the Crosstown LRT and the business owners along Eglinton West have the ability repercussions of COVID-19 have dramatically to engage in and influence the policies and plans impacted Little Jamaica. These damages, in that directly impact their livelihoods. We thank each combination with the implications of the Eglinton of them from Keele Street to Marlee Avenue for their Connects Planning Study, have raised many concerns time and for sharing their ideas and concerns with about what the neighbourhood will look like in us. the future. Since the start of the Crosstown LRT construction, dozens of Black-owned businesses As we draw nearer to the close of the United Nations from Marlee Avenue to Keele Street have closed, and International Decade for People of African Descent storefronts remain vacant. (2015-2024), we remind the City of its commitment to the “Decade’s themes of recognition, justice and It is essential for those responsible for developing development for People of African descent”2 . Our and implementing planning studies such as Eglinton hope is that this report, and the recommendations Connects, and transit infrastructure projects like the found herein, will prompt decisive and intentional Crosstown LRT, to acknowledge and understand action from the City to chart a future that is sure. We that the pattern of displacing Black communities will hope that the next documentary that is made about not end unless Black people are intentionally and “Little Jamaica” captures the story of its resurgence. meaningfully engaged.
As part of the City of Toronto’s Confronting Anti- Black Racism Unit (CABR)’s “Growing in Place”
3 Image 1–1: Photo of session
4 Message from OACC
OACC’s mission revolves around not only the physical design of communities, but also the process of design - that is, who is involved and has the power to shape our physical environment - and the effects of design on people’s socio-economic well-being, the environment, and daily life.
In Little Jamaica, we see once again that those most impacted by planning and design are those most left out of the conversation. And yet, we were humbled to see in the two sessions we helped facilitate, that in spite of this and other compounding challenges, many business owners and residents are still willing to take time out of their busy days to come together and envision a better, more equitable future for their community. We are honoured to contribute our skills as designers in helping BUTO and allied organizations to plan and document the conversations necessary for realizing a better future Little Jamaica.
In this unprecedented time, we hope that City staff will take time to reflect on how we can recover and rebuild more equitable, inclusive, and resilient neighbourhoods. We hope you will read this report, and learn and sincerely listen, as we did, to the needs, challenges, and many hopeful ideas that Black business owners have for making Little Jamaica a vibrant community again.
5 Table of Contents
0.1 Acknowledgments 2 0.2 Foreword 3 0.3 Executive Summary 7 0.4 Report Methodology 9 0.5 Overview and Historical Context 11 1 Ongoing Issues and Recommendations 16 1.1 BIA Relationships 16 1.2 LRT Construction 19 1.3 COVID-19 21 2 Long-Term Issues and Recommendations 23 2.1 Eglinton Connects 23 2.2 Economic Development Study 26 2.3 Cultural Events 31 2.4 Planning Framework Study 33 3 Conclusions 41 3.1 Endnotes 43 3.2 List of Figures 46 4 Appendices 49 4.1 Eglinton Connects Summary 49 4.2 Built Environment and Programmatic Study 51 4.3 List of All Recommendations 60 0.3 Executive Summary
This report details the compounding issues faced by Little Jamaica businesses due to ongoing construction, future development, and the current COVID-19 pandemic, as well as selected recommendations to address them. The issues and recommendations are outlined below. BIA relationships COVID-19
BIAs in Little Jamaica have a history of not The global COVID-19 pandemic has exacerbated being accountable and responsive to the Black the pre-existing challenges faced by Black- business owners they represent. owned businesses in Little Jamaica.
To address the erosion of trust, the Eglinton COVID-19 adaptation and recovery policies need Hill BIA, Fairbank Village BIA and York-Eglinton to account for the systemic challenges Black- BIA should begin working towards rebranding owned businesses face and include a focus on the area to better reflect the neighbourhood’s building long-term economic sustainability for Black communities, and providing support for Black-owned businesses. streetscape improvements. Eglinton Connects In addition, the City needs to provide more oversight of BIA governance to ensure that local Business owners are concerned about BIAs operate transparently and democratically, the challenges of further gentrification, and provide more pathways for Black business cultural erasure, and disruptive construction owners to participate in BIA leadership. As because of future development under the redress for cases where the current BIA funding recommendations of the Eglinton Connects model perpetuates systemic barriers towards study. The study, in its broad strokes, fails ethno-cultural businesses, the City should make to acknowledge the unique strengths and alternative sources of funding directly available challenges of communities like Little Jamaica. to the affected businesses and organizations. The Economic Development Study and Planning Framework Study chapters provide LRT construction recommendations for addressing the gaps and oversights in the Eglinton Connects study in a LRT construction has caused physical and holistic manner. economic disruptions which have forced numerous businesses in Little Jamaica to close. The City of Toronto’s City Planning and Economic To prevent even more businesses closing, the Development and Culture Divisions should City and provincial governments need to follow collaborate on these studies to ensure that up with immediate actions including financial public consultations are jointly delivered and compensations, moratorium on commercial that the subsequent studies complement each evictions, and relaxations on parking. other.
7 Economic Development Study
Little Jamaica requires a sustainable economic development strategy to be implemented in parallel with the anticipated revitalization outlined in Eglinton Connects.
The strategy must intentionally address the economic needs and assets unique to Little Jamaica, and identify opportunities to ensure the long-term economic resiliency, especially in the context of future development. Cultural Events
The lack of support from BIAs, combined with the impacts of LRT construction have prevented revenue-generating and community- strengthening cultural events from being held in Little Jamaica.
The City and Metrolinx should make more resources available to support the organization of revenue-generating cultural events and programs post COVID, as well as the development of cultural rebranding efforts led by Black-owned businesses and organizations. Planning Framework Study
The Eglinton Connects study has failed to address the unique challenges and strengths facing Little Jamaica businesses.
A Planning Framework Study specific to the area colloquially referred to as Little Jamaica should guide the future development of the neighbourhood in a holistic manner, with full consideration of Little Jamaica’s economic and cultural needs. It should include guidelines for preserving and constructing affordable commercial spaces, incremental densification and preservation of culturally-significant spaces, affordable housing, design of public spaces that celebrate Caribbean and broader African culture, and pedestrian-centred infrastructure.
8 0.4 Report Methodology
This report, and the recommendations within, has been developed through numerous conversations with Black business owners, discussions and events organized with allied groups, as well as through research of secondary sources (policy recommendations and reports, academic literature). Below is a summary of the process of this report’s development. Data collection, especially pertaining to COVID-19, is still on-going.
Ongoing Data Collection One-on-one conversations with business owners about BUTO and OACC also displacement and gentrifica- distributed paper surveys to tion on Eglinton West. business owners during and after December 2019 the conversation sessions. BUTO One-on-One BUTO invited around 55 began collecting survey responses Black businesses in the Little through door-to-door outreach; Coversations Jamaica area to two conver- however, COVID-19 disrupted sation sessions on transit-re- these efforts. BUTO and allied lated displacement in Little organizations (Black Business and Jamaica. BUTO had in-depth Professional Association) are still individual conversations with conducting follow-up conversa- each business on their tions with business owners, espe- concerns about the future of cially with regards to COVID-19 Little Jamaica. impacts.
In December 2019 OACC also encouraged participants at the Black Futures on Eglinton American Institute of Architecture (BFOE) and BUTO led a Students Conference to brainstorm Community Visioning event January 2020 ideas on events and initiatives in for local residents. Community Little Jamaica that might draw Visioning outside visitors to the area. Event Conversation Session 1 Conversation Session 2 33 attendees representing BUTO and OACC led the local businesses and allies businesses and allied including Parkdale Neigh- organizations in drafting a bourhood Land Trust, City of list of actions and demands Toronto’s Confronting on the issues identified in Anti-Black Racism Unit, and the first sessions. February 2020 the Black Business and Conversation Professional Association, Toronto Community Benefits Sessions and Network and Councillor Josh Allied Events Matlow attended the initial session at Sankofa Lounge, which became an open-end- ed conversation on both the gaps within the Eglinton Connects study and the urgent issues facing Black business owners in Little Jamaica.
Allied Events BFOE organized a Reggae The Caribbean Solidarity Night involving music and Network hosted a discussion storytelling about the future at A Different Booklist (with of Black art and culture on BFOE, Jane Finch Action Eglinton West. As well, BFOE, Against Poverty) on space, staff at Maria A. Shchuka race and belonging in Library and Jelani ‘J Wyze’ Caribbean Toronto. Nias worked with 10 Black youth on Afro-futrustic short stories about Eglinton Ave West which encompassed concerns of displacement but also optimistic on what the area could become.
Research and Synthesis BUTO, OACC, and SOCA summarized the primary research gathered from the conversations sessions, and conducted further research into the issues facing Little Jamaica and potential solutions to these issues. The authors consulted Report secondary sources such as news reports, academic literature, Draft reports, economic scans, and policy recommendations by similar organizations. BUTO has also synthesized and incor- porated the valuable recommendations of allied organiza- tions, namely BFOE, the Black Business and Professional Association (BBPA), the Canadian Black Chamber of Com- merce (CBCC), and the Network for the Advancement of Black Communities (NABC), into this report.
June 2020 A preliminary draft was shared with select stakeholders for Preliminary feedback before formal publication, and their feedback has Draft Release been incorporated into this revision of the report. 0.5 Overview and Historical Context
Image 1–2: One of many barbershops in Little Jamaica that also serve as spaces of informal gathering and community bonding
History and Context An excellent reference for further reading on the history of Little Jamaica is “The Erasure of For the purposes of this report and to support Little Jamaica: Exploring the Role of Design in continued documentation of the Black the Gentrification of Toronto’s Eglinton Avenue neighbourhood centred along Eglinton Avenue West”, a master’s thesis by York University West, the neighbourhood will be referred to as graduate Debbie Gordon . Much of the “Little Jamaica”. The area is primarily defined information in this section references that work. by the commercial businesses clustered along Eglinton Avenue West between Marlee and The area around current-day Little Jamaica Oakwood Avenues. Though this strip may be was largely agricultural land until after the first considered the heart of Little Jamaica, there are World War when Toronto’s population grew no distinct boundaries as many of the Black- rapidly around streetcar suburbs. Gordon owned businesses continue south on Oakwood writes that “between 1924 and 1946 the area Avenue and west towards Keele Street. around Dufferin Street, Oakwood Avenue and Vaughan Road began to add schools, libraries, Colloquially known as, ‘Eglinton’ within Toronto’s parks, and other community features”3 . By Black community, the neighbourhood has been the 1960’s Canada began to make changes a distinct ethnic and cultural hub for Caribbean to its discriminatory immigration policy that and African immigrants for well over 40 years. had previously favoured White immigrants Photo of Barbershop Photographer: Jon Blak 11 while discouraging all others4. These changes the new LRT line and the COVID-19 pandemic led to an increase in immigration from British Multiple forces are threatening Little Jamaica’s Commonwealth countries and gave rise to new Caribbean communities throughout Toronto. Black Displacement Early Jamaican enclaves included Kensington Market and a cluster of businesses along the survival as a “transnational ethnic enclave; north-west corner of Bathurst and Bloor Streets. a space for new immigrants and successive This was followed by areas along Eglinton West generations of the Caribbean diaspora (Little Jamaica) and later Rexdale, Jane and to connect with home.”5 Even before the Finch, and many pockets of Scarborough. By the repercussions of COVID-19 on local businesses, 1970’s Little Jamaica had become not only the the disruption associated with LRT construction main Jamaican expatriate community in Toronto – now likely delayed until “well into 2022”6 – but one of the largest around the world; rivaling combined with the lack of government or cities like London and New York. agency programming, led to the permanent Like many immigrant communities, Little closure of many Black-owned businesses in the Jamaica was filled with the scenes and spirit of neighbourhood (images 1-4 and 1-5). Further, the island homeland. Caribbean barbershops, streetscape transformations recommended by hair salons, grocers, and restaurants made the the Eglinton Connects plan will rip up sidewalks area a destination, at a time when mainstream and disrupt foot traffic long after the current retailers and grocery stores in Toronto didn’t phase of construction. Recent zoning and sell Black hair care products or have an ethnic planning changes have opened the door to food aisle that catered to Caribbean cuisine. gentrification and Black displacement without Beyond facilitating the everyday consumer creating policy or bylaws to sustain and support needs of Caribbean immigrants, Little Jamaica the growth of Black-owned businesses. If became a musical hotspot in the 70’s and 80’s at nothing is done to mitigate these powerful a time when Reggae and later Dancehall were in forces, Little Jamaica will disappear. their prime. Many of the world’s most renowned The Eglinton Connects study envisions a Reggae stars recorded and performed in the transformed Eglinton that will “attract a new neighbourhood, while others passed through population looking for a high quality of life that when they had shows in Toronto. They included is contemporary in its urban vision.”7 However, Bob Marley, Peter Tosh, Bunny Wailer, Jackie the study ignores what happens to the Mittoo, Gregory Isaacs, Beres Hammond, and existing population when this new one arrives. Leroy Sibbles among many others. Gentrification, or “the reinvestment of urban In many ways the spirit of Eglinton was a space for the use of a more affluent clientele,” 8 reflection of the colourful street life in Jamaican results in rising rents, displacement of housing cities like Kingston where patrons and residents and businesses, and conflict in the community. would purchase their daily needs while others Gentrification does not happen on its own; it is would leisurely gather over the smells of jerk facilitated by city policy, including documents chicken on open grills, and the soothing sounds like Eglinton Connects. Researchers have found of the latest reggae hit or dancehall riddim that “proximity to rail transit”, like the Eglinton blasting from outdoor speakers. This spirit Crosstown, “and to other gentrifying census continued from the 1970’s through to the early tracts, have a statistically significant effect on 2000’s evidenced by the Junior Carnival Parade gentrification”9 in large Canadian cities. Over the (also known as Kiddies Caribana) and the street three-year period that the Eglinton Connects celebrations during Jamaica’s entry into the study was conducted, gentrification and the 1998 FIFA World Cup. However, recent decades impact on existing communities was not given have seen the community face the challenges of adequate consideration, and therefore neither demographic change and gentrification, which was the value of Black culture or Black lives. has been exacerbated by the construction of
12 Image 1–3: Photo of Reggae musician Leroy Sibbles in Toronto, ~1980
13 Image 1–4: Businesses in the planning framework area under Black ownership in ~2010
Image 1–5: Businesses in the planning framework area under Black ownership in early 2020. More closures may occur due to COVID-19
14 As an example of gentrification patterns, The explains that cultural erasure “is about having Downtown Brooklyn Plan of 2004 involved your historical presence in a space, your stories similar zoning changes to those along and claim of belonging . . . purposefully ignored Eglinton West. Its intent was to encourage the and forgotten.”16 development of new office space, thus creating For Little Jamaica businesses, that erasure jobs in the area, as well as mixed-use residential is expressed in the lack of recognition of and retail. The Plan lacked policy specific to African and Caribbean culture in City planning ensuring affordable retail or housing.10 A documents, how the local BIAs promote the community study published several years later neighbourhood, and the removal of cultural reported that significant development had events like the Junior Carnival Parade. In occurred, but the projected increase in office interviewing local Black-owned businesses uses had not materialized. High-end residential owners in Little Jamaica, Debbie Gordon found buildings became the predominant type of that they “primarily saw the space as a cultural development, and few new jobs were created, one; as a set of relationships. . .” If city policies while 1,700 jobs and 100 existing businesses on historic preservation only set value on bricks were displaced.11 and mortar, these places of cultural relationship The loss of these downtown Brooklyn will be erased. businesses means that, as a result, people Little Jamaica is in danger of disappearing. of African-American and Caribbean descent There are powerful forces putting pressure on who account for a large portion of the area’s the community from all sides. But right now, daily shoppers also experience the effects if the City listens to the voices of the people in of economic gentrification when the stores this neighbourhood, there is an opportunity to at which they could once afford to shop are shift the trajectory. If Toronto wants to remain displaced.12 a city that is a “cultural mosaic”, then it must A similar process is taking place on Eglinton dedicate the material resources and adopt West, as once again the Black/Caribbean the equity-focused approaches necessary to community and other marginalized groups, ensure that Little Jamaica and other culturally bear the brunt of political inaction to address distinct neighbourhoods are protected against gentrification and displacement. Displacement gentrification and development pressures. can be either direct, as in the case of popular Based on conversations with local business grocery store Gus’ Tropical Foods, which was owners, in addition to research into tools for closed to make way for the new Oakwood LRT addressing gentrification in similar contexts in Station, or indirect, as with People’s Choice North America, this report outlines examples Grocery Store, which closed because the of actions necessary to realize the survival, and business could not afford the rising commercial hopefully, the future prosperity of Little Jamaica. rent.13
This is by no means the first time a Black community in Canada has been faced down by inadequate action and the forces of city policy and development. Debbie Gordon cites examples of other Black neighbourhoods in Canada which experienced “neglect or purposeful erasure,”14 including Amber Valley in Alberta, and the Grange neighbourhood in Toronto. Author Katherine McKittrick lists other examples, such as “the demolition of Africville in Nova Scotia and Hogan’s Alley in Vancouver”.15 In addition to physical displacement, Gordon
15 Image 1
1 Ongoing Issues and Recommendations 1.1 BIA Relationships
Image 1–6: BIAs along Eglinton West
Business Improvement Areas (BIA) and A major goal of revitalization and retention is neighbourhood associations use geographically to encourage both local residents and others demarcated boundaries to determine and to spend their shopping dollars within the local represent their members. Both aim to shape commercial district. planning decisions and the public realm. The image above shows the locations of the BIAs What We Heard in Little Jamaica on Eglinton West Avenue from In our conversations with the business owners, Marlee to Keele. many of the owners voiced their concern The purpose of BIAs is to help oversee the with the BIAs within Little Jamaica and the improvement, beautification, and maintenance lack of support provided by the BIA boards of of municipally owned land, buildings, and management of three main areas: Eglinton structures beyond City standard levels; Hill, Fairbank Village and York-Eglinton. The streetscaping; business promotion; graffiti BIAs in this area have a high concentration removal; safety and security measures; strategic of Black-owned businesses along Eglinton planning; and advocating on behalf of the West but have little to no representation of interests of the businesses.17 In addition, a BIA Black people on their BIA boards. The history operates to revitalize and maintain a dynamic of bias towards the Black community, lack local neighbourhood and to promote the area of care or responsiveness to the needs of as a business or shopping destination. Black businesses to succeed, and resistance
16 to promote Eglinton West as Little Jamaica by for local businesses. As an example, the York- the Eglinton Hill and York-Eglinton BIAs have Eglinton BIA has made the decision to save eroded the relationship and trust of the Black their reserved funds for development of the businesses in the area. streetscape and beautification of Little Jamaica post LRT construction. In the meantime, Black Some of the concerns business owners raised businesses that have been paying levies and with the BIA include board meetings held have contributed to the success of the area for without notice being provided to business decades are now facing hardship without any owners, decisions being made without meeting advocacy or support from the BIA. quorum, only opening specific board positions for elections, and events being held without It was apparent in the discussions that the Black input from or notice given to business owners. business owners could not point to any tangible The business owners throughout the sessions initiatives that the BIAs throughout Eglinton raised concerns on the number of terms a BIA West have undertaken to help improve Black chair can serve in the position continuously. The businesses in the area. owners believe the lack of change in leadership is anti-democratic and plays a major role in the lack of growth along Eglinton West. Recommendations: The following are a list of recommendations Most notably there are concerns raised with to address the gaps in BIA governance and the Chair of York-Eglinton BIA and the time he improving outcomes for the Black business has served in the position. While it is common community: for the BIA Chairs to hold these positions for 1.1.1 Amend the York-Eglinton BIA Strategic a lengthy period, the business owners feel it Plan to ensure the support of Black creates a lack of accountability in representing businesses is highlighted as a key the voices of the Black community. The business priority; owners expressed that the BIAs have the ability to influence local decision-making but neglect 1.1.2 Intervention and greater oversight from to collect input from the Black business owners. the City of Toronto to ensure proper For instance, the creation of Reggae lane which governance until trust is restored. Limit runs east from Oakwood Avenue, behind a strip the length a BIA Chair can serve in of buildings south side of Eglinton West in Little the position continuously and create Jamaica, was seen by many in the community pathways for business owners to apply as an unsuccessful project. A cultural mural for leadership positions; tucked out of sight by an alleyway with a high concentration of drug use was not something 1.1.3 Eglinton Hill, Fairbank Village and that business owners saw as a positive York-Eglinton are to consult with Black representation of Caribbean culture. businesses and provide statements detailing how Black businesses are Local business owners believe that the revenue to be involved in the decision and they have brought into the community and implementation processes; have paid through BIA levies for decades should be used to help with beautification 1.1.4 Toronto City Councillor Josh Matlow and improvement of the business areas. is to clarify the ownership and While the purpose of the BIA is to guide stewardship of Reggae Lane and any improvements with street beautification future plans of the space. and promote urban business areas, the BIAs 1.1.5 The Economic Development and Culture have neglected making the streetscape more Division should look to create a Black appealing. They have made no genuine effort business sub-committee on the Eglinton to promote the cultural assets and identity of Hill, Fairbank Village York-Eglinton BIA the Caribbean community to attract revenue boards to represent and speak to the
17 needs of the Black business owners in Little Jamaica;
1.1.6 The General Manager, Division Head of the Economic Development and Culture Division should implement an outreach and recruitment strategy to increase participation of Black business owners on both BIA boards, in tandem with board governance training;
1.1.7 Revisit the Board of Management Procedures and release the York- Eglinton BIA four-year strategic plan with identified implementable action item;
1.1.8 Rebrand and officially rename the area of Eglinton Ave West from Marlee Ave to Keele St from the currently named “International Market” to “Little Jamaica”;
1.1.9 The Eglinton Hill, Fairbank Village and York-Eglinton BIA should undertake a number of streetscape beautification projects to highlight Little Jamaica’s heritage, add Afro-Caribbean cultural public art, and maintain a neat and tidy appearance where possible during construction;
1.1.10 Create a Little Jamaica website that would provide visibility and marketplace for business owners in Little-jamaica, have information on Black businesses that operate in Little Jamaica and an opportunity to promote local Black- owned business growth and long-term sustainability;
1.1.11 Make municipal funding directly available to local Black business groups to recognize that the current funding model perpetuates systemic barriers.
18 1.2 LRT Construction
Image 1–1: Construction along Eglinton West
Toronto is well aware of the impacts of LRT construction on Little Jamaica businesses. Since the start of construction, 140 businesses have closed along Eglinton West18, and it is inevitable that, without drastic action, more Black-owned businesses will shutter as a result of delayed construction, the compounding effects of COVID-19, and an overall lack of programming support from government and local BIAs. LRT construction has physically disrupted the the pattern of disengagement has continued. ability of customers across Toronto to visit Token gestures of assistance (such as assisting Little Jamaica businesses, which largely rely with digital marketing or signage20 ) have failed on foot traffic for revenue. Construction waste to address the fundamental problem of impacts and hoarding have blocked the visibility of to foot traffic, driver safety, and accessibility, storefronts and created a hostile pedestrian and and failed to account for the specific systemic driving experience. In addition, speculation has barriers faced by Black-owned businesses, led commercial landlords to raise commercial such as eligibility for financing and access to rents, making it impossible for many businesses technology (see chapters on COVID-19 and to continue operating in Little Jamaica. BIAs). The lack of meaningful compensation and local policy initiatives have exacerbated Government agencies neglected to involve Little Jamaica’s decline. Little Jamaica businesses when drafting early environmental impact reports19, and since then
19 Recommendations: We have heard again and again from Black business owners and allied organizations, during the sessions and in prior and subsequent conversations, of the necessity for immediate action to preserve Little Jamaica. Recommended actions include:
1.2.1 Financial compensation paid directly to businesses for construction impacts. The level of compensation should be equity-based, and take into account any effects of systemic anti-Black racism faced by Black-owned businesses;
1.2.2 Opening the LRT in phases to mitigate construction delay, and clean-up of construction waste and equipment from sidewalks. City Council’s decision to engage with the provincial government on these recommendations is commendable, however, further follow- through is required21;
1.2.3 More logistical support in terms of temporary parking locations and/or relaxations on parking enforcement; Image 1–2: Construction staging areas blocking retail spaces. There has 1.2.4 Rental assistance, and a moratorium on been little change on the ground despite City Council’s adoption commercial evictions extended for the of a plan to start cleaning up construction waste. duration of construction;
1.2.5 Ensuring that loans and financial supports are available to all struggling businesses, including those who may be unable to pay taxes; and
1.2.6 Developing policies aiming to retain existing tenants when commercial properties are sold, namely first right of refusal.
20 1.3 COVID-19
Image 1–3: As a result of structural inequities compounded with years of disruption to business caused by LRT construction, Black businesses in Little Jamaica have been especially severely affected by the pandemic. Many have shuttered. The global COVID-19 health pandemic has been detrimental for businesses nation- wide and the City of Toronto has seen numerous small to medium sized businesses shutter their doors. However, businesses along Eglinton West, in particular the Black- owned businesses, have been in a state of precarity well before the pandemic began. The Canadian Black Chamber of Commerce government liaisons, representing the interests (CBCC) made it clear in their advocacy to of Black businesses and the broader Black government officials that there must be special community, and advocating for both funding consideration given to Black-owned businesses and policy responses to the needs that have to address the historical inequities that Black arisen due to the pandemic. business owners have faced. This speaks As part of our efforts to provide comprehensive directly to Black business owners in Little recommendations related to COVID-19, these Jamaica who have been struggling through the organizations were engaged to gather insights Crosstown LRT construction project. from what they have observed through their Other organizations, namely the Black business interactions with government and Black and Professional Association (BBPA), and business owners, to identify what could be the Network for the Advancement of Black applied to the Little Jamaica context. Communities (NABC) have also been acting as
21 What We Heard Recommendations Some of the needs that were observed included: It is recommended that:
• Direct funding to the businesses that would 1.3.1 The City of Toronto apply a systems be a mixture of both grants and loans; approach to its COVID-19 recovery and efforts to address systemic anti-Black • Training for entrepreneurs to have the tools racism, by focusing on the development to take their businesses online; of a sustainable Black ecosystem and • Deferring property taxes; Little Jamaica’s potential role in the said ecosystem; • Procurement provisions that would allow Black-owned businesses to be given a 1.3.2 All efforts related to the COVID-19 percentage of procurement contracts; recovery and anti-Black racism be tied to measurable policy outcomes; and as • Waiving fees for business registration; it relates to anti-Black racism - proposed solutions should be embedded in the • General awareness of the access to internet policy framework of the City; and/or computers and general online tools for business owners to promote their 1.3.3 An anti-Black racism analysis be applied business and reach clients; to review the current socio-economic state of Little Jamaica, including for • Ensuring that collaboration at the matters relating to COVID-19 impacts, community level is the order of the day to BIA governance and the impact of the break silos and maximize the efforts in the Crosstown LRT construction relative to COVID-19 response; other impacted areas; and • Sustainable financial infrastructure for 1.3.4 The City of Toronto and the Black community to address the deep intergovernmental partners support rooted issues resulting from systemic anti- Black serving organizations to provide Black racism; culturally appropriate training to: • Focus on a sustainable Black ecosystem 1. help transition business operations (sustainable funding sources and emphasis online, including the provision of the on collaboration across sectors to drive necessary hardware and internet long-term systems change) ; and resources; and • Connecting the well established evidence 2. ensure business readiness for in priority areas to policy outcomes (e.g. procurement and other funding poverty reduction, education, health care, opportunities. employment, housing).
22 Image 2
2 Long-Term Issues and Recommendations 2.1 Eglinton Connects
Image 2–1: Participant concerns about Eglinton Connects recorded at the first conversation session In addition to the impacts of ongoing LRT construction and the disruptions brought on by COVID-19, the Eglinton Connects study, and future development resulting from its implementation also pose challenges for the resiliency of Little Jamaica businesses and the wider community.
What We Heard engaged over 5000 people22. However, by neglecting to apply an equity-based lens At the first conversation session held by BUTO to the study, opportunities to meaningfully and OACC, Black business owners expressed engage Black residents and businesses that they had been largely left out of the were not considered, or at best overlooked. consultation process. They were not aware Consequently, the study perpetuated a history that its recommendations are currently being of systemic anti-Black racism and inequity in implemented. Business owners described Canadian planning practice.23,24,25 Despite experiencing basically no engagement with the being largely excluded from the process thus city, except in sessions involving the BIA, which far, business owners were eager to find out how few businesses had been informed of. they could influence the implementation of the study’s recommendations moving forward. Purportedly, the Eglinton Connects study involved over 60 consultation sessions, and
23 Below is a summary of concerns about the owners at the session, it should also be noted study that Black business owners raised at that Eglinton Connects fails to recognize the the conversation session. The concerns were cultural heritage of Little Jamaica. The report grouped into three major themes: gentrification, sees Eglinton as a “predominantly pass-through cultural erasure, and infrastructure. corridor”26, and focuses on attracting “new Recommendations to address these concerns high-quality development to support places for are laid out in the following chapters. living, employment, shopping, culture and recreation”.27 While the study mentions Gentrification preserving character areas and heritage Business owners responded positively to the buildings, it stops short in addressing how enhanced design and beautification of Eglinton future urban design and policy could build upon West depicted in the Eglinton Connects study the less tangible spatial practices and culture of renders but were concerned about the potential Little Jamaica- evident in the distinct food, music impacts of gentrification. They noted that and other cultural practices of the area, that rising rents, combined with disruptions from have the potential to sustainably generate current LRT construction had already forced economic growth from within. many businesses to close. They also stressed the need for immediate actions to address current construction impacts, to ensure that businesses can remain in Little Jamaica long enough to benefit from the improvements under Eglinton Connects. Further, session participants were concerned that the Eglinton Connects Study did not include enough provisions to address displacement of existing residents due to gentrification. They noted that Eglinton Connects did not include provisions for Image 2–2: Eglinton Connects is a broad set of guidelines and illustrates a affordable, accessible housing (an issue given universal approach to urban design along Eglinton top priority by 60% of local respondents in a Infrastructure and Roadwork: separate survey conducted by Black Futures on Eglinton). Thus, there was much concern that Future infrastructure construction proposed with the implementation of Eglinton Connects, under Eglinton Connects does not account for Black-owned businesses and residents would the desires and concerns of existing Black- experience even more displacement. owned businesses, particularly related to impacts on foot traffic and accessibility. Cultural Erasure Business owners were concerned that future Business owners also expressed concerns infrastructure construction under Eglinton about cultural erasure. Some of these concerns Connects would once again cause significant included that once the components of Eglinton disruptions to foot traffic. One participant Connects are in place, there would be “no expressed frustration at the lack of phasing and more Little Jamaica”, due to gentrification and co-ordination of the proposed work, wondering the disruptive impacts of future construction, why the proposed burying of hydro lines wasn’t combined with a history of disinvestment in already carried out in conjunction with current the cultural strengths of the Little Jamaica LRT construction. Others were worried about neighbourhood (ex. the relocation of the Junior the impact of even more construction waste on Carnival Parade, and lack of BIA support for pedestrian safety. cultural festivals and Black-led branding efforts, There were also worries about the effects of etc ). reduced bus service. One business owner Beyond the above concerns raised by business noted that local residents, especially new
24 immigrants, currently rely on the buses as a convenient form of transportation, as the distance between stops are short and service is currently frequent. There was concern that moving transit underground would reduce visibility of existing businesses, and also reduce foot traffic to businesses located further from LRT stations
Recommendations In response to the concerns above, future planning for Little Jamaica needs to be holistic in nature, and carried out with the full involvement of Black business owners, to ensure that all can benefit from the improvements under the Eglinton Connects Study.
Recommendations for future planning (through a Planning Framework Study and Economic Development Study) can be found in the following chapters.
2.1.1 The City of Toronto’s City Manager must direct the City Planning and Economic Development and Culture Divisions to collaborate on these studies, to ensure that public consultations are jointly delivered and that the subsequent studies are developed in tandem to complement each other. Development of the studies must include targets, timelines, and the allocation of necessary resources.
25 2.2 Economic Development Study
Image 2–3: Little Jamaica is a centre for Caribbean cuisine, which animates the street and provides connection to culture for Toronto’s Caribbean community, as well as for visitors (as seen in Anthony Bourdain’s The Layover). At the height of Little Jamaica’s prominence from the 1970s well into the early 2000s, Caribbean businesses along Eglinton Avenue West constituted the majority28 and even referred to as a Black business district. This is significant not only in the context of Toronto, with Little Jamaica having highest concentrations of Black-owned businesses in the City29, but undoubtedly also for Canada. Now in 2020, we see that the future of Little In P.E. Moskowitz’s book “How to Kill a City, Jamaica is increasingly becoming the landmark Gentrification, Inequality, and the Fight for the issue that could determine how the City Neighbourhood”, he explores the interests of approaches its future development. Through public intellectuals, politicians, planners and forums such as the Mayor’s Roundtable, heads of corporations to demonstrate how facilitated by the Confronting Anti-Black Racism “the policies that cause cities to gentrify are Unit and the Economic Development and crafted in the offices of real estate moguls, Culture Division, the City has demonstrated and in the halls of city government.”30 He its willingness to listen. The interest and continues, “when a poor neighbourhood is attentiveness are welcomed. However, these are viewed as having more potential for profit, not enough. In land use planning, which plays politicians and industry work hard to change the most pivotal role in the neighbourhood’s how that neighbourhood is used, […] the perpetuation or demise, there are many actors process of exchange values trumping use values and interests at play. [is called] “highest and best use”. It is evident
26 that there is, at present, no counterbalance to Black-owned businesses, and the culture and the “highest and best use” approach that led heritage that espouse them, that bring the true to the development of the Eglinton Connects identity and marketability to the Study. Recent provincial rulings related to neighbourhood. Although the recommendations development in Toronto’s midtown and above were intended for the area covered by downtown core31 also demonstrate the extent the York-Eglinton BIA, they are also applicable to which this focus exclusively on unlocking to the longstanding Black-owned businesses the value of land is at odds with creating a city within the Fairbank Village and Eglinton Hill BIAs where citizens can thrive. stretching west from Dufferin Street to Keele Street. Debbie Gordon states pointedly in the conclusion of her study on the Little Jamaica, that “design’s role in the erasure of Little What We Heard Jamaica has been to cater to interests and During our two-part consultation series in tastes that align with a larger neoliberal plan February, attendees frequently referenced for Toronto. This is seen through the fact that the unique role that businesses such as the erasure of Little Jamaica has not been a barbershops and salons play in Little Jamaica, passive event but instead the culmination of a which fulfill the need of community hubs that deliberate set of actions and inactions”32 . The offer supportive interpersonal connections and question is, are there a set of actions that can spaces that enable the transmission of culture be taken now to mitigate the erasure that has and the sharing of essential, often critical already begun? information.
In 2017, the City of Toronto commissioned an economic scan for the York-Eglinton BIA, as well as several other BIAs along the corridor, through the Economic Development and Culture Division. For the purposes of this report, the focus will be on two recommendations that provide a clear path forward that the City can immediately begin to support, not only for the vitality of Little Jamaica, but also for the continued success of the York-Eglinton BIA.
1. Consolidate and expand the Little Jamaica
cluster, for example, by: Image 2–4: Session participants noted that in addition to being places • Promoting Caribbean restaurants, of commerce, businesses in Little Jamaica are also important street art, clothing, and developing a spaces for community . heritage map Business owners were particularly concerned • Developing events around Caribbean about the power dynamic between tenants arts and culture and landlords and their inability to be 2. Prioritize hair services [as] a key cluster, meaningfully involved in decision making at not only from a retail perspective but [also] the BIA level. They were very much aware of from the perspective of social or community the vulnerabilities of leasing their property, gathering places.33 increasing rent, and the need for economic sustainability. The concerns around property From an economic perspective, these ownership were supported by conversations recommendations acknowledge that in spite of around community ownership models, such as the neighbourhood’s official name as the community land trusts. “International Market”, it is the “Caribbean” or
27 It was also noted that official recognition by the related to economic exclusion34 which could City and giving the area an appropriate name hasten gentrification and displacement. We to better reflect its identity are two tangible therefore recommend that an anti-Black actions that are integral to the economic analysis be applied in concert with each of the sustainability of the area in the face of an recommendations below. uncertain future. These suggestions were further reinforced by recommendations to Recommendations establish a long-term economic vision for Little The City of Toronto should, through the Jamaica, one that contemplates its current Economic Development and Culture Division realities and aspirations for the future, post LRT conduct an Economic Development Study of the construction. Little Jamaica neighbourhood covering the area Business owners acknowledged that in spite spanning from Keele Street to Marlee Avenue of the current economic hardship presented and overlapping with the Eglinton Hill BIA, by the LRT, innovative approaches could and Fairbank Village BIA, and the York-Eglinton BIA should be used to increase the marketability to: of the area. The majority of the businesses 2.2.1 Assess the tangible and intangible provide in-person services, primarily accessed cultural, economic, and historical assets through foot traffic. They acknowledged brought to the area by the presence challenges such as the lack of parking and of the Black-owned businesses and unrelenting law enforcement efforts to issue how these can be leveraged to drive tickets despite the ongoing economic hardship., economic growth; as well the disinvestment in the area that has raised concerns for safety and attractiveness for 2.2.2 Create an inventory of land assets potential customers. along Eglinton Ave West, including identification of public land; There was universal support for bringing various cultural events to the area, as it was 2.2.3 Assess the financial contribution acknowledged that other ethnic enclaves of Black-owned businesses to their throughout the city are able to derive sufficient respective BIAs relative to (1) money revenue from events such as annual street spent on promoting their goods and festivals. It was acknowledged that during LRT services, or (2) any other benefit construction events based on the Reggae theme received from the expenditure of BIA have been held by the York-Eglinton BIA but funds; have had little to no economic benefit for the local businesses. 2.2.4 Explore the feasibility through a pilot project for implementing an economic For the Eglinton Hill BIA, economic activity was development model which leverages reported to be ad-hoc with no clear vision in business spaces, such as barbershops place. On occasion street events have been and salons, as extensions of the held without engagement or the awareness of public realm (as contemplated by the business owners. As a result, these events have recommendation in the 2017 York- had limited success and have not provided any Eglinton BIA Economic Scan); economic benefit for local businesses. 2.2.5 Assess the opportunities to establish In order to establish a comprehensive plan Little Jamaica as an economic, cultural, for Little Jamaica an economic development and social hub, including, but not strategy is required, in which the cultural, limited to: economic and historical assets unique to Little Jamaica, can be leveraged and driven by the 1. An assessment of the economic Black community. We acknowledge that efforts impact for the local and broader to capitalize on opportunities derived from the Black community from establishing LRT could also have negative consequences dedicated coworking and business
28 incubation spaces to support local Network for the Advancement of Black talent and skills development; Communities;
2. An assessment of the economic 2.2.11 Explore options to mitigate the impact for the local and broader displacement of Black-owned Black community from the businesses during any future establishment of cultural industries construction, such as establishing and events as an economic driver; temporary and/or long-term spaces akin and to the Business out of the Box (BOB) initiative; 3. An assessment of the tourism and economic benefits associated with 2.2.12 Ensure that the City of Toronto’s the brand “Little Jamaica”; community benefits framework is embedded in the economic 2.2.6 Explore the feasibility of using a “legacy development strategic plan to leverage business designation” to mitigate the future economic development displacement of existing businesses due opportunities for residents of equity to rent increases; seeking groups including for: job and 2.2.7 Identify the barriers and opportunities opportunities; social procurement; to property ownership by Black neighbourhood and environmental business owners in Little Jamaica. improvements, and provisions for accountability, monitoring and 2.2.8 Assess the general economic impact reporting; and of relocating existing annual African/ Caribbean cultural events held in 2.2.13 Ensure that the economic development Toronto, for all businesses in the strategic plan aligns with the actions geographic area referred to as Little outlined in the Toronto Action Plan Jamaica; to Confront Anti-Black Racism, in particular: 2.2.9 Implement a pilot project to test the findings of the Economic Development Action 7. Improve the quality Study, including community-led of recreation services for Black initiatives to inform the development Torontonians; of a five-year economic development Action 15. Support Black-owned strategic plan; businesses to better compete and thrive 2.2.10 Establish a five-year economic in Toronto; development strategic plan for Little Action 20. Make City spaces more Jamaica in consultation with local accessible and welcoming to Black residents; BIAs; and community Torontonians; organizations; including targeted consultations for Black communities Action 21. Invest in Black arts and and Black serving organizations, culture. including but not limited to: residents living in surrounding neighbourhood improvement areas; Black business owners and associations such as the local collective One People Many Businesses; the Black business and Professional Association; the Jamaican Canadian Association; the Canadian Black Chamber of Commerce and the
29
Precedent: Scadding Court Business Out of the Box Initiative
Image 2–5: Market707 at Scadding Court Community Centre Market 707, Business Out of the Box The Business Out of the Box initiative is a social Source: from franchise model that provides entrepreneurs and Google Streetview non-profits with low-income with access to affordable, micro-scale business spaces in the form of retrofitted shipping containers. Market 707 by Scadding Court Community Centre is the first implementation of this model. In addition to providing affordable retail space for start-ups, the shipping containers also draws pedestrians and activity to the street. As of 2015, Market 707 is home to 18 businesses with over a hundred on the waiting list.
30 2.3 Cultural Events
Image 2–6: Conversation session participants suggested bringing the Junior Carnival Parade, known as Kiddies Caribana, back on Eglinton West as a way of generating revenue for local businesses
After the threats posed by COVID-19 have abated, culturally-focused events and initiatives, organized by Black businesses and associations can be ways of bringing back foot traffic and revenue to Little Jamaica while strengthening local community relationships and preserving cultural heritage. • Celebrating Black Girl Magic and promoting What We Heard natural hair care and the many salons in the Black business owners are eager to organize neighbourhood and take advantage of the cultural strengths • Bringing back Caribana to Little Jamaica, or of Little Jamaica for the purposes of economic organizing affiliated events improvement and community building. Here are a sample of ideas for revenue-generating • Block parties associated with Caribana and cultural events gathered from the two business other festivals conversations, and input from allied activists: • Promoting area as destination for musical • Food festivals, like Jerk Fest performances
• Week-long, annual Black History Month • Walks and tours highlighting local history - festival highlighting food, clothes, and like Jane’s Walks, and story-telling events salons • Night market opportunities
31 Recommendations Addressing Cultural Erasure The City of Toronto and Metrolinx should provide the following resources to support organization of the cultural events listed above:
2.3.1 Financing support (ex. grants, seed funding), and education on how to access financing;
2.3.2 Logistical support (ex. more relaxations on parking enforcement);
2.3.3 Improvements to neighbourhood cleanliness and safety during construction; and
2.3.4 Public communications that Eglinton West is a safe place for visitors.
32 2.4 Planning Framework Study
Legend City of Toronto Planning Framework Study boundaries Approximate boundaries of Little Jamaica (based on BUTO’s registry of Black businesses, and common cultural understanding of neighbourhood extents)
Image 2–7: Boundary of the Planning Framework Study shown in comparison with boundaries of the area commonly understood to be “Little Jamaica”, where there is a concentration of Black-owned businesses (based on BUTO’s outreach work).
The Planning Framework Study for Eglinton West around Vaughan Road must be developed in close collaboration with all relevant stakeholders, including local residents, Black-owned businesses, and community groups, in order to successfully address gaps in previous planning initiatives (see “Eglinton Connects”). The study should centre the retention of Black residents and businesses as a key indicator for success. Boundary Discrepancies What We Heard From BUTO’s registry of Black-owned As noted in the “Eglinton Connects” chapter, businesses, we see a significant discrepancy we learned that merely improving the physical between the boundary of the City of Toronto spaces of Little Jamaica is not enough if existing Planning Framework Study and the corridor businesses will be displaced and therefore commonly understood as Little Jamaica, where unable to enjoy these improved spaces. Thus, many Black-owned businesses are located. future planning for the area must be conducted Given this discrepancy, the City should amend in a holistic fashion, and address concerns the Planning Framework Study boundaries to regarding gentrification and displacement, include all of Little Jamaica, from Keele Street to cultural erasure, and pedestrian-oriented Allen Road. streetscapes.
33 Recommendations 2.4.5 The area of new retail spaces should be restricted, so that the spaces can be Addressing Gentrification: Increasing affordable and accessible for existing small Affordable Commercial Space businesses and new start-ups. New at-grade commercial spaces should be affordable to the small businesses that have made Little Jamaica such a vibrant Precedent: East New York Retail neighbourhood. It is recommended that: Preservation Program 2.4.1 Commercial spaces in new In 2016, New York City piloted the East New York developments with usable areas over Neighborhood Retail Preservation program35, 500sq.m. dedicate at 20% of that space in the East New York rezoning area, requiring to be sold or leased below market rate, developers in sites receiving over $2 million in city to ensure that small businesses, new subsidies and including over 10,000 square feet businesses, and those serving low- of retail to set aside 20% of commercial space for income residents can remain in Little local businesses to be leased at 30% below market Jamaica (See Precedent: East New York rate. So far, the program has had success and the Retail Preservation Program); city plans on expanding the pilot.36
2.4.2 The City hold Metrolinx accountable to their 2015-2020 Sustainability Strategy, Goal # 5 to “Enhance Community Addressing Gentrification: Mid-rise Responsibility”. For example, Metrolinx Development that Retains Existing should dedicate commercial space Commercial Spaces in LRT stations within the Planning Framework Study area for: The Eglinton Connects Study envisions future midrise development as a large, continuous 1. Black-owned businesses; form along Eglinton. This total reconstruction of the streetscape will result in the demolition 2. Businesses that require temporary and consolidation of many small commercial or pop-up storefronts due to properties. These small buildings will be construction in the Planning replaced by fewer, larger buildings, and many Framework Area; existing businesses, which act also as spaces for 3. Community-owned non-profit community, will be displaced in the process. organizations. These commercial An entire street of mid rise buildings not only spaces are to be rented at below annexes adjacent commercial lots, but impacts market rates, and with priority given the residential streets to the north and south. to existing Black-owned businesses. While Eglinton Connects illustrates strategies for 2.4.3 Priority be provided for existing Neighborhood Transition Areas to accommodate businesses to relocate in commercial these larger buildings, the Planning Framework spaces within new developments; Study should look at alternative strategies to 2.4.4 Small-scale storefronts should be increase density. established at the green P lot at Reggae New development must build upon the existing Lane, drawing reference from Market character of architecture and urban space in 707 at Scadding Court. These storefronts are to be reserved for businesses that Little Jamaica, and enhance its vibrancy and need to temporarily relocate due to resiliency. To that end, the Planning Framework construction in the Planning Framework Study should: Area (See image 2-14); and
34 2.4.6 Include an analysis of the built fabric planning requirements for new retail and urban space of Little Jamaica, that developments may be desired, to documents existing commercial places encourage setbacks from the front lot with cultural value. Appendix 4.2 is a line to accommodate queuing spaces, preliminary study created by the report curb-side services, or outdoor seating authors for this purpose, and should be with adequate separation (See image expanded upon with further analysis 2-14). and community input; See Appendix 4.2 of this report for graphical 2.4.7 Recommend revisions to zoning illustrations of some of the recommendations bylaws and planning permissions to above. allow for increased density on streets adjacent to or intersecting Eglinton, and promote mid- rise development on Precedent: Vancouver Chinatown Zoning Reversal larger lots and sites with less cultural and historical significance to the In 2018, the Vancouver City Council voted to revise community. (Appendix 4.2 illustrates zoning policies adopted in 2011, intended to such an initial analysis, which should be encourage “revitalization” of its historic Chinatown expanded upon with future community through high density development37,38. The zoning input). For example, higher density revisions were implemented in response to allowances along Oakwood could relieve gentrification concerns spurred by rapid increases development pressure on Eglinton; in land value due to the 2011 policies. The revised zoning bylaw reduced the permitted widths and 2.4.8 Recommend policies, guidelines and heights of new developments in hopes that new incentives that preserve existing growth would be more in context with the scale retail storefronts by encouraging infill of the existing neighbourhood, to minimize the development and incremental additions large-scale displacement of existing businesses and (see image 4-19 in Appendix 4.2, and residents. the included precedent examples of Vancouver and Toronto’s Chinatown preservation efforts); Addressing Gentrification: Affordable 2.4.9 Suggest zoning and planning revisions Housing to allow for less disruptive approaches Little Jamaica should continue to be a place that achieve the intended outcomes of where business owners and customers of all the Neighbourhood Transition Areas put income levels can afford to live, in order to forth in Eglinton Connects, while taking into account local lot orientations and support a vibrant, resilient, pedestrian-oriented geometries. One suggested revision is “main street” and public realm. illustrated in image 4-19 in Appendix 4.2. Moving forward, the City must commit to the 2.4.10 Restrict the width of the frontage of new equitable development of City-owned lands retail spaces to allow for an animated to achieve its affordable housing goals. The street wall that encourages pedestrian amended Planning Framework Study needs to activity; and directly address the preservation and future 2.4.11 Develop guidelines for how retail spaces provision of affordable housing, through the can be better designed to accommodate following measures to start: physical distancing measures in the 2.4.12 Implementing the city’s inclusionary event of another pandemic, with zoning (IZ) policy for all market- the full input of local businesses. rate housing developments at more For example, minor revisions to aggressive rates. We recommend
35 that at least 30% of units in new high- Precedent: “The Plan for the Preservation of density development areas be priced Chinatown”, 1969 below market rate permanently (at rates geared to the median household incomes of existing local residents). This figure considers feedback from the city’s own public engagement efforts, and echoes the demands of other local housing advocacy organizations;42,43,44
2.4.13 In addition to implementing a more aggressive IZ policy, forming partnerships outside of the private sector to develop housing, for example, Image 2–8: Incremental additions to a building near Kensington by building the capacities of local Market non-profit developers, housing co-ops, community land trusts, etc; Toronto has a history of preserving culturally significant neighbourhoods and allowing them 2.4.14 Prioritizing the use of public land to grow in place. When Chinatown businesses (ex. Green P parking, Beer Store) for and residents were being displaced by the non-profit housing development, and construction of Nathan Phillips Square and the maximizing opportunities for non-profit proposed construction of high-rise office towers developers to build on these sites45,46,47 in the late 60’s, activists successfully pressured the (See “Precedent: Fraser Lands River city to unanimously adopt the “The Plan for the District Affordable Housing, Vancouver”); Preservation of Chinatown”39, allowing Chinatown to grow into the vibrant neighbourhood it is today. Up 2.4.15 Providing funds for the preservation until the present, Chinatown has densified gradually and retrofitting of existing affordable as businesses have added on to and expanded the rental stock, while enforcing policies to 48 area’s original buildings. prevent renovictions and evictions due to COVID-19 impacts;
However, while Chinatown has remained a 2.4.16 Developing initiatives to integrate new predominantly Asian neighbourhood in the face of construction with career development gentrification, there is not an analogous condition programs in the trades (ex. Building Up); in Little Jamaica. While Toronto intervened to preserve the Chinese identity of Chinatown, there 2.4.17 Prioritizing Little Jamaica when securing has not been the same action for historically Black or making use of funding for affordable communities in the city, not for the Grange, nor for housing development and retention Bathurst and Bloor, nor Regent Park, which have obtained from provincial and federal seen their Black residents and histories displaced in levels of government (ex. funds from the the course of the city’s development. 40,41 National Housing Strategy); and 2.4.18 Expropriating privately-owned lands available for development, and developing non-profit housing or community spaces on those site (See Appendix 4.2 ,Large Low-Density Commercial Properties and Open Spaces).
36 of culturally significant public spaces Precedent: Fraser Lands River District Affordable within the boundaries of the study. Housing, Vancouver Public spaces, transit station interiors, streetscapes, furnishings, art, and signage etc throughout Little Jamaica should be designed according to one unified vision, in a manner sensitive to the existing Caribbean iconography and cultural history of the neighbourhood (See “Precedent: Seattle Midtown Activation” and “Precedent: West Oakland, Black Cultural Zones”);
2.4.21 Expanding Reggae Lane, and the adjacent Green P parking space into Image 2–9: 3245 Pierview Crescent, with 51 affordable rental units a formalized public space, to better accommodate programming suggested The city of Vancouver, Community Land Trust (CLT), in “Cultural events”; and the Vancouver Affordable Housing Agency 2.4.22 Designing the streetscape and other (VAHA) have recently begun the construction of 140 public spaces in the study area to units of housing affordable to families with incomes accommodate programming and events between $41,500 and $124,000, with funds from the that specifically celebrate the Caribbean city’s new affordable housing endowment fund. The community and generate revenue for building also includes a number of accessible units, local businesses (See Cultural Events”, providing much needed housing for seniors and Image 2-14); and people of all abilities.49 2.4.23 Leveraging funds from the future Community Benefits Charge to support Addressing Cultural Erasure: culturally inspired improvements to parks and recreation spaces, and The amended Planning Framework Study must involve the Caribbean community in the address the preservation and expansion of visioning and creation of these spaces. culturally significant businesses, community programs, and public spaces, to support the area’s economic development, through the following measures:
2.4.19 Creating an inventory and architectural study of buildings, urban spaces, and businesses of cultural importance to be preserved, in collaboration with local Caribbean businesses and members of Toronto’s Caribbean community. We recommend retaining and enhancing these spaces, and prioritizing higher density development on sites without significant cultural value to the local community. (See Appendix 4.2);
2.4.20 Fully involving local residents in the creation of a holistic plan for the design
37
Precedent: Seattle Midtown Activation, Studio Zewde Precedent: West Oakland, Black Cultural Zones
Image 2–10: Image 2–11: Intervention at E Union St and 23rd Ave Block party to build support around the Black Cultural Zone
In the past decade, Oakland California has lost 30% of its Black residents51. Recently, faced with gentrification pressures from the construction of a Bus Rapid Transit (BRT) line, and from the tech boom across the Bay, residents and non-profit organizations in Oakland California have organized themselves to create a Black Cultural Zone. A central part of the Black Cultural Zone is the creation of a BCZ hub that would provide cultural programming, as well as economic, mental, and physical health supports for Oakland’s Black community.52
Image 2–13: Community dinner held at temporary plaza
Responding to gentrification at the heart of Black Precedent: Huron St Public Space Seattle, the Africatown Community Land Trust and landscape architecture firm Studio Zewde created a temporary plaza that acted as an urban living room. The plaza served as a site for a series of design ciphers - community discussions on the future of the historically Black community in Seattle in the context of intense development pressures.
The interventions consisted of the painting of an existing parking lot and intersection, and permanent, Image 2–12: Huron Street Public Space under construction concrete street furniture, the construction of which involved hundreds of local volunteers and youth50. Toronto’s Chinatown BIA, with help from local councillor Joe Cressy and the City of Toronto, completed construction on a new public space at Huron and Dundas streets. The intervention consists of new culturally themed street furniture, designed by local architect Jyling Lee. New seating provide places for pedestrians to rest and new lighting improves safety at the intersection.
38 Addressing Infrastructure and Roadwork 2.4.30 Phasing: Future construction to implement Eglinton Connects should To improve the pedestrian experience be phased so that disruptions to foot along Eglinton West, the amended Planning traffic are local and temporary. The Framework Study should: city should provide temporary parking locations or relaxations on parking 2.4.24 Incentivize construction of seating and enforcement. The city should also other street furniture along the sidewalk involve Little Jamaica business owners in and boulevards where possible, to discussions with regards to the duration provide a comfortable pedestrian and sequence of construction; and experience (See image 2-14); 2.4.31 Hoarding and management of 2.4.25 Engage local businesses in discussions of construction waste: Contractors must how public sidewalks and streetscapes be responsible for keeping sidewalks can be improved to better accommodate clean and safe for pedestrians, storing social distancing measures in the event waste and equipment away from public of another pandemic like COVID-19; spaces, and ensuring that hoarding 2.4.26 Encourage provision of signage, maps, as much as possible does not block and directories of Caribbean businesses storefronts. If obstructive hoarding is within LRT stations and the broader absolutely needed, then the hoarding transit network to encourage foot should be used to promote public art traffic from stations to businesses along and local culture. Eglinton;
2.4.27 Promote streetscape design that increases pedestrian safety. Streetscape A Vision for Little Jamaica design should consider lighting, separation from traffic, and sightlines On the following spread, the authors share for vehicles and pedestrians. Work our suggestion for a future vision for Little closely with Black-owned businesses Jamaica. The proposed vision illustrates the and community members to develop recommendations listed in this chapter, streetscape design; and including incremental development, streetscape 2.4.28 Provide guidelines to ensure visual elements celebrating Caribbean culture, street prominence of public spaces and public furniture and spaces that promote pedestrian art from LRT stations to draw foot traffic traffic, and public spaces that enhance both along the street. the culture and economic livelihood of Little Jamaica. Future Implementation and Phasing:
We also demand that the city and provincial Image 2–14: governments ensure future construction for (Next spread) -A future vision for the design of Eglinton West, one that centres on the cultural strengths of Little Jamaica. Eglinton Connects results in as little disruption as possible to Little Jamaica businesses, by adhering to the following principles:
2.4.29 Duration of construction: In each neighbourhood on Eglinton West, the duration of construction should be kept to a minimum. Establish penalties for delayed construction, with proceeds going to businesses affected;
39 NEW DEVELOPMENT A NEW PARK SURROUNDING NEIGHBOURHOOD STREET FURNITURE New mid-rise developments to Convert existing Green P parking lot Preserving the built fabric of Little Jamaica Designed by local artists. provide at least 50% affordable into a community park that connects requires spreading density to surrounding retail and at least 15% affordable to Reggae Lane. residential areas. Policy encouraging duplex, residential units. triplex and fourplex units is essential. ARCHWAY Supporting banners, lighting, COMMUNITY CENTRE VENDOR STALLS REGGAE LANE Provide heath, childcare and Provide affordable and pop-up Amend zoning to allow for commercial and sound systems. other social services needed in retail space for events and busi- and live/work laneway suites to sup- MURALS the neighbourhood. nesses temporarily displaced port the vibrancy of Reggae lane. by construction. Painted by local artists
EXISTING BUILDINGS CURB-SIDE PATIOS BLACK STAR WALK-OF-FAME CROSSWALK NEW DENSITY Existing commercial-residential buildings are Allow for businesses to use the A walk-of-fame commemorating In order to maintain affordability and cultural char- indispensable and facilitate the majority of space in front of their storefronts as the members of the Black and acter, it is essential that new density is incremental small and independent businesses in Little additional seating, and retail space. Caribbean-Canadian community and sensitive to the existing scale and build form. Jamaica. They must not be demolished for land assembly and new development. Image 3
3 Conclusions
Through the Black business Conversation consultation series, key stakeholders in Little Jamaica’s future were provided the opportunity to not only learn about the plans that are in development for the area, but also provide their perspectives to shape them. The concerns shared and the recommendations provided demonstrate that community members such as the Black business owners, are indeed experts on the needs of their communities. We hope City staff sincerely engage with local residents on the issues laid out in this report, as well as the recommendations, which have the potential to make Little Jamaica a vibrant, inclusive, and prosperous neighbourhood again. In summary, the issues and recommendations are as follows:
BIA Relationships: support (ex. more relaxations on parking enforcement). BIAs on Eglinton West have a history of dis- engagement with Black-owned businesses. City COVID-19: staff must work to ensure greater accountability of BIA leadership to Black business owners COVID-19 has exacerbated pre-existing and increase opportunities for Black business vulnerabilities affecting Black communities and owners to serve in leadership positions within businesses. Thus, government agencies should BIA boards. enact COVID-19 recovery policies that include an anti-Black racism lens, and include the goal of In addition, the neighbourhood should be re- improving long-term economic sustainability for branded and officially re-named to reflect its Black businesses. These policies should also be Caribbean heritage. In support of this, BIAs in tied to measurable outcomes. Little Jamaica should dedicate resources towards streetscape improvement and beautification Eglinton Connects: efforts. As a broad-strokes document, Eglinton Connects Lastly, where the current funding model of BIAs fails to acknowledge the unique socio-economic perpetuate systemic, racial barriers, the City needs and assets of Little Jamaica. The City should make funding directly available to local should address these gaps by developing an Black businesses and organizations. Economic Development Study, and amending the current Planning Framework Study to more LRT Construction: specifically address the needs of Little Jamaica businesses and residents. The city is well aware of the impacts of LRT construction on Little Jamaica and other communities along Eglinton. Municipal and Economic Development Study: provincial governments must act immediately Little Jamaica needs an economic development to help Black-owned businesses stay open strategy to be implemented in parallel with the throughout construction, by assisting with anticipated revitalization outlined in Eglinton financial compensation, support with regards Connects. The strategy must intentionally to rent and eviction prevention, and logistical
41 address the economic needs and assets specific to Little Jamaica and Black-owned businesses, preserve, build upon Little Jamaica’s Caribbean brand, and identify opportunities to build long- term economic resiliency and innovation in Little Jamaica, especially with consideration of the impacts of future development. Cultural Events: To preserve Little Jamaica’s cultural heritage, government agencies must provide more financial, logistical and human resources to support the organization of revenue-generating cultural events by Black-owned businesses and organizations. Planning Framework Study: The City should amend the Planning Framework Study for Eglinton West around Vaughan Road to include enforceable guidelines that support the holistic development of Little Jamaica. The Study should address gentrification through guidelines that prioritize the retention of existing culturally- significant commercial spaces, encourage densification in an incremental fashion, and preserve and increase the supply of truly affordable housing. It should include a framework for the design of public spaces that support both revenue generating activities and the cultural needs of Little Jamaica. In addition, the Study should guide the construction of infrastructure that promotes foot traffic and pedestrian activity.
42 3.1 Endnotes
1. Rutland, Ted. Displacing Blackness: Planning, 52, no. 1 (2015), 178-194. Power, and Race in Twentieth-century 10. Downtown Brooklyn’s Detour the Halifax. To-ronto: University of Toronto Unanticipated Impacts of Rezoning and Press, 2018. Development on Residents and Businesses 2. Armstrong, Neil. “Toronto Officially (New York City, NY: Pratt Center for Recognises The UN Decade For People Community Development,[2008]) 11 Of African Descent.” Pride News, April 11. Ibid. 18, 2019. Accessed July 17, 2020. http://
pridenews.ca/2019/04/18/toronto-officially- 12. Ibid. recognises-un-decade-people-african- descent/#:~:text=TORONTO, Ontario April 13. Gordon, “The Erasure of Little Jamaica: 18, 2019,Confronting Anti-Black Racism Plan. Exploring the Role of Design in the Gentrification of Toronto’s Eglinton Avenue 3. Debbie Gordon, “The Erasure of Little West” 1 Jamaica: Exploring the Role of Design in the Gentrification of Toronto’s Eglinton Avenue 14. Ibid.
West” (Graduate Program in Interdisciplinary 15. Katherine McKittrick, Demonic Grounds: Studies, York University, 2018), 18. Black Women and the Cartographies of StruggleU of Minnesota Press, 2006), 96 4. Gordon, “The Erasure of Little Jamaica:
Exploring the Role of Design in the 16. Gordon, “The Erasure of Little Jamaica: Gentrification of Toronto’s Eglinton Avenue Exploring the Role of Design in the West”, 15 Gentrification of Toronto’s Eglinton Avenue West” 34. 5. Ibid.
17. Toronto Municipal Code Chapter 19, 6. “Eglinton Crosstown LRT Won’t be Ready Until ‘Well into 2022,’ Metrolinx Says.” CBC Business Improvement Areas, (2019)
News, sec. Toronto, Feb 18, 2020, 2020. 18. Ania Bessonov, “Little Jamaica Businesses Suffer Amid Yet another Delay in Eglinton 7. Jennifer Keesmaat et al., EGLINTONconnects VOLUME 2: The Plan:Recommendations and LRT Con-struction,” CBC News, sec. Toronto, Implementation Strategies (Toronto: City of Mar 04, 2020, 2020.
Toronto,[2014]). 19. The broadbent blog, 2020, https://www. broadbentinstitute.ca/recognition_of_ 8. Jason Hackworth and Josephine Rekers, “Ethnic Packaging and Gentrification: The informal_gatherings_of_place_and_space.
Case of Four Neighborhoods in Toronto,” 20. Mira Miller, “Small Businesses on Eglinton Urban Affairs Review 41, no. 2 (2005)201. Demand Compensation After Latest LRT Delay,” blogTOMar 2020, 2020. 9. Annelise Grube-Cavers and Zachary
Patterson, “Urban Rapid Rail Transit and 21. The Delay of the Eglinton Crosstown by the Gentrification in Canadian Urban Centres: A Province’s Metrolinx - by Councillor Mike Survival Analysis Approach,” Urban Studies Colle, Seconded by Councillor Josh Matlow
43 (Toronto: City of Toronto,[2020]). Toronto Star, June 5, 2019. Accessed May 22, 2020. www.thestar.com/news/ 22. Jennifer Keesmaat et al., EGLINTONconnects city_hall/2019/06/05/province-to-change- VOLUME 2: The Plan:Recommendations and development-rules-for-toronto.html. Implementation Strategies (Toronto: City of Toronto,[2014]). 32. Debbie Gordon, “The Erasure of Little Jamaica: Exploring the Role of Design in 23. Aayesha Patel., “Transit-Led Development the Gentrification of Toronto’s Eglinton and Gentrification: A Case Study on the Avenue West” (Graduate Program in Eglinton Crosstown.” Interdisciplinary Studies, York University,
24. Jay Pitter. “A Call to Courage: An Open Letter 2018), 127. to Canadian Urbanists.” Canadian Urban 33. York-Eglinton Study Area: Economic Scan Institute (June 10, 2020) May 2018. Prepared for the York-Eglinton
25. Case, Cheryll. “How Neighbourhoods are BIA by the Downtown Yonge BIA and funded Built to Keep Out Single Women.” The through the City of Toronto, Business Walrus (Jul. 16, 2019. Improvement Area Office”.
26. Jennifer Keesmaat et al., EGLINTONconnects 34. Debbie Gordon, “The Erasure of Little VOLUME 2: The Plan:Recommendations and Jamaica: Exploring the Role of Design in Implementation Strategies., 12 the Gentrification of Toronto’s Eglinton Avenue West” (Graduate Program in 27. Ibid. Interdisciplinary Studies, York University,
28. Heath- Rawlings, Jordan. “In Search of 2018), Its Soul A Loud Clash of Visions; Once 35. East New York Neighborhood Plan: Progress Italian, Now Largely West Indian, an Report. New York City: New York City, 2017 Eglinton West Neighbourhood Struggles to Find an Identity One Businessman Has 36. Olivia Lavecchia, “In Cities Around the an Answer If He Can Just Get People to Country, New Action on Commercial Listen, Writes Jordan Heath- Rawlings.” Affordability,” Institute for Local Self Toronto Star, November 21, 2004. Accessed Reliance, 2018. May 21, 2020. http://search.proquest. 37. Kitty Cheung, “Vancouver City Council Votes com.ezproxy.torontopubliclibrary.ca/ on New Zoning by-Law for Chinatown,” The docview/438747427?accountid=14369. PeakJuly 25, 2018, 2018.
29. Infantry, Ashante. “Little Jamaica 38. Chinatown Development Policy Changes – Competition Is Stiff in the Shopping Area Progress Update from Staff to Community That Has Sprung up along Eglinton Ave. (Vancouver, BC: City of Vancouver,[2018a]). to Cater to the Tastes of a Growing West Indian Community.” Toronto Star, August 7, 39. Chan, Arlene, “Jean Lumb”. In The 1995. Accessed May 21, 2020. http://search. Canadian Encyclopedia. Historica Canada. proquest.com.ezproxy.torontopubliclibrary. Article published October 04, 2018; Last ca/docview/437310908?accountid=14369. Edited October 04, 2018. https://www. thecanadianencyclopedia.ca/en/article/jean- 30. Moskowitz, P. E. How to Kill a City: lumb Gentrification, Inequality, and the Fight for the Neighborhood. New York, NY: Bold Type 40. Debbie Gordon, “The Erasure of Little Books, 2018. 26 Jamaica: Exploring the Role of Design in the Gentrification of Toronto’s Eglinton 31. Pagliaro, Jennifer. “Province Overrules Avenue West” (Graduate Program in Toronto on Plans for Midtown, Downtown Interdisciplinary Studies, York University, to Allow Taller, Denser Towers.” 2018), .
44 41. Royson James, “Roots of Toronto’s Black 51. US Census Bureau, 2016 American Community Run Deeper than You might Community Survey 1-Year Estimates, Table Think,” Toronto Star, sec. City Hall, B03002, 2016). November 12, 2016, 2016. 52. “Black Cultural Zone - About,” Black Cultural 42. Steve Pomeroy, Examining the Feasibility Zone, , accessed May 2, 2020, https://www. and Options for an Inclusionary blackculturalzone.org/about.html.Built Zoning Policy in TorontoMaytree Environment and Programmatic Study Foundation,[2019]). 53. Jennifer Keesmaat et al., EGLINTONconnects 43. “Inclusionary Housing: A Good Tool but VOLUME 2: The Plan:Recommendations and Let’s Wield it Carefully,” SPUR, last modified Implementation Strategies (Toronto: City of Feb 23, 2017, accessed April 25, 2020, Toronto,[2014]).Eglinton Connects 24. https://www.spur.org/news/2017-02-23/ 54. Ibid. inclusionary-housing-good-tool-let-s-wield-
it-carefully. 55. Ibid. 40.
44. “The City of Toronto Needs STRONG 56. Ibid. 108. Inclusionary Zoning,” ACORN Canada, , accessed May 2, 2020, https://acorncanada. 57. City of Toronto Zoning by-Law 1030-2014, org/take-action/city-toronto-needs-strong- Public Law 1030, (2014): ..
inclusionary-zoning. 58. See City of Toronto Zoning By-law Interactive Map, https://map.toronto.ca/ 45. David Amborski and Diana Petramala, Governments in Ontario Making Headway in maps/map.jsp?app=ZBL_CONSULT.
using Surplus Lands for Housing (Toronto, 59. Ibid. ON: Centre for Urban Research and Land Development,[2019]). 60. Keesmaat et al., EGLINTONconnects VOLUME 2: The Plan:Recommendations and 46. Seila Rizvic, “How Non-Profit Housing Implementation Strategies 89. Developers could Ease Toronto’s Affordability Crisis,” The TyeeNov 20, 2018, 61. Ibid. 109. 2018.
47. See the City of Mississauga’s “Public Land for Housing First” recommendation: Edward R. Sajecki, Information Report (all Wards) Affordable Housing Program: Public Land for Housing First (Mississauga, Oon: City of Mississauga,[2016]).
48. . WE CAN’T WAIT: Preserving our Affordable Rental Housing in Ontario (Toronto, ON: Advocacy Centre for Tenants Ontario,[2019]).
49. . City and Community Land Trust Break Ground on 140 New Units of Affordable Co-Op Housing (Vancouver, BC: City of Vancouver,[2018b]).
50. Jasper Tran O’Leary et al., “Who Gets to Future? Race, Representation, and Design Methods in Africatown” 2019).
45 3.2 List of Figures Cover image: Archival image of store in Little Jamaica Photographer: Jon Blak
Image 1–1: 4 Photo of session Source: by OACC Image 1–2: 11 Photographer: Jon Blak Image 1–3: 13 Photo of Leroy Sibbles Photographer: Beth Leser Source: https://www.bethlesser.com/photos/ Image 1–4: 14 Business in the planning framework area under Black ownership in ~2010 Source: by OACC Image 1–5: 14 Business in the planning framework area currently under Black ownership Source: by OACC Image 1–6: 16 BIAs along Eglinton West Source: by OACC Image 1–1: 19 Construction along Eglinton West Photographer: Mary Crandall. Source: https://www.flickr.com/photos/57340921@N03/47486040332 Image 1–2: 20 Construction along Eglinton West Photographer: BUTO Image 1–3: 21 Photographer: BUTO Image 2–1: 23 Participant concerns about Eglinton Connects recorded at the first conversation session Image 2–2: 24 Image of prescribed midrise development along Eglinton from Eglinton Connects Source: https://www.cip-icu.ca/Files/Awards/Planning-Excellence/Eglinton-Connects-Final-Report-Volume-2.aspx Image 2–3: 26 Screenshot of the Layover with Anthony Bourdain By BUTO Image 2–4: 27 Participant feedback on importance of businesses as community spaces By BUTO Image 2–5: 30 Market 707, Business Out of the Box Source: from Google Streetview Image 2–6: 31 Boy participating in Caribana Source: https://www.peakpx.com/467382/boy-wearing-brown-and-yellow-ruffled-wing-costume-standing-on-road Image 2–7: 33 Planning Framework Study boundaries in comparison with boundaries of “Little Jamaica” Source: by OACC Image 2–8: 36 Incremental additions to a building near Kensington Market Source: from Google Streetview Image 2–9: 37 3245 Pierview Crescent Source: https://vaha.ca/projects/ Image 2–10: 38 Intervention at E Union St and 23rd Ave Source: Google Streetview
46 Image 2–13: 38 Community dinner held at temporary plaza Photographer: Naomi Ishisaka Source: https://studio-zewde.com/midtown-activation Image 2–11: 38 Block party to build support around the Black Cultural Zone Photographer: Charles Lee Source: https://www.blackculturalzone.org/block-party.html\ Image 2–12: 38 Huron St Public Space under construction Source: https://www.chinatownbia.com/announcements/huron-street-public-square-is-coming-soon/ Image 2–14: 39 A future vision for the design of Eglinton West, that centres on the cultural strength of Little Jamaica. Source: by SOCA Image 4–1: 50 Images from Eglinton Connects Study of proposed streetscape types at Eglinton West Source: https://www.cip-icu.ca/Files/Awards/Planning-Excellence/Eglinton-Connects-Final-Report-Volume-2.aspx Image 4–2: 50 Diagrams showing recommendations from Eglinton Connects Study super-imposed onto existing streetscape Source: by OACC Image 4–3: 51 Building categories within the Planning Framework Study boundaries Source: by OACC Image 4–4: 52 Building categories within the Planning Framework Study boundaries Source: by OACC Image 4–5: 52 The John Howard Society Source: from Google Streetview Image 4–6: 52 St Thomas Aquinas church and food bank Source: from Google Streetview Image 4–7: 53 Proposed rendering of Fairbank LRT station Source: Google Streetview Image 4–9: 53 Unison Community Health Center Source: Google Streetview Image 4–8: 53 Toronto Fire Station 341 Source: Google Streetview Image 4–10: 53 Regeneration House Source: Google Streetview Image 4–11: 54 Existing residential buildings Source: by OACC Image 4–12: 54 Existing mid rise block Source: Google Streetview Image 4–13: 54 TCHC Seniors’ housing and St Hilda’s not-for-profit housing Source: Google Streetview Image 4–14: 55 Newer townhouse development Source: Google Streetview Image 4–15: 55 Two housing developments on Eglinton West Source: Google Streetview Image 4–16: 55 Single family residences Source: Google Streetview
47 Image 4–17: 55 Condominium under construction at Oakwood and Eglinton Source: https://condonow.com/Empire-Midtown Image 4–18: 56 Types of retail uses and spaces in Planning Framework Study area Source: by OACC Image 4–19: 57 Street sections comparing recommendations for densification Source: by OACC Image 4–20: 57 Wailer’s Connection Source: from Google Streetview Image 4–21: 57 1, 2, and 3-storey Caribbean-operated businesses Source: from Google Streetview Image 4–22: 57 Trea-Jah Isle Records Source: from Google Streetview Image 4–23: 57 Oakwood LRT being built where Gus’ Tropical Foods once operated Source: from Google Streetview Image 4–24: 57 A building shared by a Caribbean tailor and a payday loan company Source: from Google Streetview Image 4–25: 57 Retail-residential type Source: from Google Streetview Image 4–26: 58 Map showing existing low-density commercial spaces and parking lots Source: by OACC Image 4–27: 59 Convenience store with a parking lot at Eglinton near Dufferin Source: Google Streetview Image 4–29: 59 The Beer Store on Oakwood Source: Google Streetview Image 4–31: 59 Larger commercial buildings Source: Google Streetview Image 4–28: 59 Car dealership and auto body shop Source: Google Streetview Image 4–30: 59 Green P Parking lot at Reggae Lane Source: Google Streetview Image 4–32: 59 Streetside parking Source: Google Streetview
48 Image 4
4 Appendices 4.1 Eglinton Connects Summary
Eglinton Connects is a planning study which the adjusted zoning bylaws along Eglinton West City of Toronto adopted in 2014 to guide the to allow midrise development as-of-right.57 transformation of Eglinton Avenue over time. While most existing street-facing buildings in The purpose of the study is to build on the the area are about 2 storeys, the new zoning changes set in motion by the construction of the allows for up to 24m in height, and the Eglinton new Eglinton Crosstown LRT. The study began Connects Plan recommends a 27m mid-rise in 2012 with a 2 year consultation process. building height.58 The Commercial-Residential With 21 recommendations in the categories (CR) designation is also intended to promote of Traveling, Greening, and Building, the study ground floor retail uses. Meanwhile, the envisions Eglinton as a city-spanning “main Residential-Multiple (RM) designation along street”53 corridor. The timeline for implementing Oakwood and streets adjacent to Eglinton these broad strokes recommendations restricts construction to 3 storeys.59 In addition ranges from short- to long-term. The City to encouraging midrise development, Eglinton projects that Eglinton Avenue would densify to Connects also proposes “focus areas” for “accommodate 107,000 new people and jobs, high-rise development at Westside Mall including 31,000 new employees and 76,000 and around the intersection of Eglinton and new residents”, due to development catalyzed Dufferin.60 Zoning changes to permit high-rise by LRT construction54 intensification do not appear to have been adopted yet. The study’s recommendations would affect Little Jamaica through streetscape The Eglinton Connects document concludes transformations, and zoning changes leading with a discussion of implementation strategies. to higher density development. In terms of In addition to zoning changes, it notes that streetscape transformations, Eglinton Connects Official Plan amendments at a finer grain will be recommends creating “complete streets”55 to required to adapt the broad strokes of the study provide space for walking, biking, transit, and to the character of unique neighbourhoods cars. This entails widened sidewalks, hydro along the avenue.61 lines buried to allow for new street trees, protected cycling lanes, an extended network of rear service lanes, and adjustments to road space allocation for driving and parking. Specific streetscape typologies are envisioned for different areas; those that apply to Eglinton West are shown in images 5-1 and 5-2. The proposed timeline varies: some changes around LRT stations are already happening, while changes in most other areas would be incremental, paced with road work or development.56
As part of adopting the recommendations of Eglinton Connects in 2014, the City of Toronto
49 Image 4–1: Images from Eglinton Connects Study of proposed streetscape types at Eglinton West
Image 4–2: Diagrams showing recommendationsExistin g from Eglinton Connects Study super-imposed ontoP oexisting te n tistreetscapeal Mid-rise
50 4.2 Built Environment and Programmatic Study
community services storefront retail multi residential large lot retail/service parking lot/open
Image 4–3: Building categories within the Planning Framework Study boundaries. Note: diagrams produced for this report illustrate an estimation of current and past building types, occupations, and ownership. Information was collected by a survey along Eglinton West, and also from Google Maps and Google Streetview images. The Planning Framework Study has a potential to address development at a finer grain of detail than Eglinton Connects, which suggests a uniform approach to building form across Eglinton. Since the Planning Framework Study boundaries also extend south past Eglinton, there also potential opportunities for alternative means of densification, allowing more of the Little Jamaica strip to remain, or be developed more incrementally. Development in the Planning Framework Study area For the purposes of this report, we have preliminarily requires consideration of: analyzed properties by their preservation needs and development potential into the following categories: • building ownership Community Services, Existing Residential, Storefront • community history Retail, and Large Lot businesses. Some buildings appear in multiple categories. • services provided • architectural character These categories, and other factors informing the future growth of Eglinton, as listed above, must be • lot sizes further discussed with the local community in the development of the Planning Framework Study.
51 Public Spaces and Community Programs
proposed LRT Stations religious spaces community programs spaces
Image 4–4: Community programs and spaces within the Planning Framework Study boundaries
Public spaces and community programs (along with the buildings housing them should be preserved). If redeveloped, services must be relocated with adequate provisions.
The spaces these community programs are housed in do not share a common built form, nor do they have a common ownership structure. Rather, these spaces Image 4–5: are evidence of the structural challenges faced by local The John Howard Society: criminal justice organization, reintegration residents, and the supports developed to address them. services
Redevelopments should consider what additional community spaces should be put in place, and especially those that could specifi cally support the Toronto Caribbean community.
Image 4–6: St Thomas Aquinas church and food bank 52 Image 4–7: Image 4–8: Public space (infrastructural): proposed rendering of Fairbank LRT station Public space (infrastructural): Toronto Fire Station 341
Image 4–9: Image 4–10: Unison Community Health Center Regeneration House - High support housing with community services
53 Existing Residential Buildings
existing high rise existing mid rise new highrise
Image 4–11: Existing residential buildings
Existing residential types in the Planning Framework Study boundary include:
• older highrise apartment towers
• older midrise apartment blocks
• newer townhouse devleopments
• single family homes as the prevalent type between arterial roads (not shown in colour on the map) Image 4–12: Existing mid rise block • new and proposed condominum towers
There are also buildings that serve vulnerable sections of the community, including a rehabilitation housing centre, and four seniors’ residence towers. These buildings, which combine residential and community service programs, should be retained.
There may be opportunities for gentle densifi cation at existing single family homes, and we recommend a Image 4–13: slight up-zoning in these areas. a TCHC seniors housing building on the left and the 3 towers of St Hilda’s not-for-profit senior’s housing on the right 54 Image 4–14: Image 4–16: Newer townhouse development Single family residences between arterial roads
Image 4–15: Two housing developments on Eglinton West
Image 4–17: Condominium under construction at Oakwood and Eglinton
55 Retail Storefront
1-storey retail 2-storey retail+residential mid rise retail+residential
Image 4–18: Types of retail uses and spaces in Planning Framework Study area
This is the predominant built form in the study Growth Potential: area. It is the form that gives the area “character”; • 1-3 storey additions/rear additions individual businesses and their storefronts are at an accessible scale for pedestrian interaction. Signage These buildings offer potential for sensitive denotes the distinct character of each shop or approaches to additional density without severely business. impacting main street retail. With few exceptions, the lot depths of this type in this area are less than This building type can be characterized by a 20-30’ the 30m minimum recommended lot depth for new wide retail space at grade with two or three levels mid rise construction. This, in addition to the cultural of walk-up residential apartments above. These significance of these shops, is another argument buildings make up the majority of the buildings along for less destructive redevelopment practices such as Eglinton West between Marlee Avenue and Dufferin infill, additions, or renovations. Street.
Cultural Importance: These buildings house the majority of Little Jamaica’s Black-owned businesses and are critical to the long- term affordability and success of the community. As such the removal of this building type should be discouraged.
56 Eglinton Connects Recommendation New midrise development requiring retail storefronts to be demolished Neighbourhood Transition Area for new midrise development (laneway Eglinton St West requiring demolition of residential property)
Recommendation for Incremental Densification Incremental additions/ Alternative approach to densification and infill to buildings on Neighbourhood Transition Areas: up-zone Eglinton West properties on streets immediately north and south of Eglinton
Eglinton St West
Image 4–19: Street sections comparing recommendations for densification
Image 4–20: Image 4–21: Wailer’s Connection was documented in 2014-2015 as a part of the 1, 2, and 3-storey Caribbean-operated businesses area’s Caribbean visual identity. The clothing store has since closed.
Image 4–22: Image 4–23: Trea-Jah Isle Records Oakwood LRT being built where Gus’ Tropical Foods once operated
Image 4–24: Image 4–25: A building shared by a Caribbean tailor and a payday loan company Another style of the retail-residential type. Storefront is set back 57 creating a small parking lot between shops and the street Large Low-Density Commercial Properties and Open Spaces
large low-density commercial property parking lot
Image 4–26: Map showing existing low-density commercial spaces and parking lots
Large low-density commercial properties Green P Parking lot(s), Expropriation of Existing These sites contain shops, services, and businesses, Building Stock and have a lot depth that can accommodate mid- Cultural Importance: rise or even high rise development. Businesses on Publicly owned land is critical in maintaining these sites are often corporately owned, rather than accessibility and affordability for the residents of independently owned, though not universally. Little Jamaica. This type can be characterized by 30’ to 100’ + wide Growth Potential: lots with retail at grade and range between 1 and 2 The City of Toronto has increased capacity to storeys. leverage public land for more affordable housing Cultural Importance: and additional community services, such as parks, The cultural importance of these buildings is low affordable retail, community centres, and seniors since they consist of non-Black owned corporate housing. retail that can more easily relocate during a We also recommend that Green P Parking lots redevelopment process. be designated for temporary retail uses during Growth Potential: construction (see Image 2-14). Mid-Rise to High-Rise, depending on the location: These buildings offer great potential to be redeveloped into mid-rise or high-rise buildings that promote the Eglinton Connects initiative of transit oriented density.
58 Image 4–27: Image 4–28: Convenience store with a parking lot at Eglinton near Dufferin Car dealership and auto body shop
Image 4–29: Image 4–30: The Beer Store on Oakwood Reggae Lane culminates in a Green P Parking lot
Image 4–31: Image 4–32: The Eglinton streetscape features a few larger commercial buildings Streetside parking offers space for developments or greenery
59 4.3 List of All Recommendations
BIA Relationships: 1.1.9 The Eglinton Hill, Fairbank Village and York-Eglinton BIA should undertake streetscape 1.1.1 Amend the York-Eglinton BIA Strategic beautification projects to highlight Little Plan to ensure the support of Black businesses Jamaica’s heritage, add Afro-Caribbean cultural is highlighted as a key priority; public art, and maintain a neat and tidy appearance where possible during construction; 1.1.2 Intervention and greater oversight from the City of Toronto to ensure proper 1.1.10 Create a Little Jamaica website that would governance until trust is restored. Limit the provide visibility and marketplace for business length a BIA Chair can serve in the position owners in Little-jamaica, have information continuously and create pathways for business on Black businesses that operate in Little owners to apply for leadership positions; Jamaica and an opportunity to promote local Black-owned business growth and long-term 1.1.3 Eglinton Hill, Fairbank Village and York- sustainability; Eglinton are to consult with Black businesses and provide statements detailing how Black 1.1.11 Make municipal funding directly available businesses are to be involved in the decision to local Black business groups to recognize that and implementation processes; the current funding model perpetuates systemic barriers. 1.1.4 Toronto City Councillor Josh Matlow to clarify the ownership and stewardship of Reggae Lane and any future plans of the space. LRT Construction: 1.2.1 Metrolinx must make financial 1.1.5 The Economic Development and Culture compensation paid directly to businesses Division should look to create a Black business for construction impacts. The level of sub-committee on the Eglinton Hill, Fairbank compensation should be equity-based, and take Village York-Eglinton BIA boards to represent into account any effects of systemic anti-Black and speak to the needs of the Black business racism faced by Black business owners, owners in Little Jamaica; 1.2.2 Open the LRT in phases to mitigate 1.1.6 The General Manager, Division Head of construction delay, and clean up construction the Economic Development and Culture Division waste and equipment from sidewalks. should implement an outreach and recruitment strategy to increase participation of Black 1.2.3 More temporary parking locations and/or business owners on both BIA boards, in tandem relaxations on parking enforcement. with board governance training; 1.2.4 Rental assistance, and a moratorium on 1.1.7 Revisit the Board of Management commercial evictions extended for the duration Procedures and release the York-Eglinton of construction; and BIA four-year strategic plan with identified implementable action items; 1.2.5 Ensuring that loans and financial supports are available to all struggling businesses, 1.1.8 Rebrand and officially rename the area including those who may be unable to pay of Eglinton Ave West from Marlee Ave to Keele taxes. St from the currently named “International Market” to “Little Jamaica”;
60 1.2.6 Developing policies aiming to retain Economic Development existing tenants when commercial properties are sold, namely first right of refusal. Study: 2.2.1 Assess the tangible and intangible cultural, COVID-19: economic, and historical assets brought to 1.3.1 The City of Toronto apply a systems the area by the presence of the Black-owned approach to its COVID-19 recovery and efforts businesses and how these can be leveraged to to address systemic anti-Black racism, by drive economic growth; focusing on the development of a sustainable 2.2.2 Create an inventory of land assets along Black ecosystem and Little Jamaica’s potential Eglinton Ave West, including identification of role in the said ecosystem; public land;
1.3.2 All efforts related to addressing COVID-19 2.2.3 Assess the financial contribution of Black- recovery and anti-Black racism be tied to owned businesses to their respective BIAs measurable policy outcomes; and as it relates relative to (1) money spent on promoting their to anti-Black racism - proposed solutions should goods and services, or (2) any other benefit be embedded in the policy framework of the received from the expenditure of BIA funds; City; 2.2.4 Explore the feasibility through a pilot 1.3.3 Review the current socio-economic state project for implementing an economic of Little Jamaica through an anti-Black racism development model which leverages business analysis, for matters relating to COVID-19 spaces, such as barbershops and salons, as impacts, BIA governance and the effects of the extensions of the public realm (as contemplated Crosstown LRT construction relative to other by the recommendation in the 2017 York- impacted areas; Eglinton BIA Economic Scan);
1.3.4 The City of Toronto and intergovernmental 2.2.5 Assess the opportunities to establish Little partners support Black serving organizations to Jamaica as an economic, cultural, and social provide culturally appropriate training to: hub, including, but not limited to:
• help transition business operations • An assessment of the economic online, including the provision of the impact for the local and broader Black necessary hardware and internet community from establishing dedicated resources; and coworking and business incubation • ensure business readiness for spaces to support local talent and skills procurement and other funding development; opportunities. • An assessment of the economic impact for the local and broader Black Eglinton Connects: community from the establishment of 2.1.1 The City of Toronto’s City Manager cultural industries and events as an must direct the City Planning and Economic economic driver; and Development and Culture Divisions to • An assessment of the tourism and collaborate on these studies, to ensure that economic benefits associated with the public consultations are jointly delivered and brand “Little Jamaica”; that the subsequent studies are developed in tandem to compliment each other. 2.2.6 Explore the feasibility of using a Development of the studies must include “legacy business designation” to mitigate the targets, timelines, and the allocation of displacement of existing businesses due to rent necessary resources. increases; 2.2.7 Identify the barriers and opportunities to
61 property ownership by Black business owners in • Action 21. Invest in Black arts and Little Jamaica; culture.
2.2.8 Assess the general economic impact of relocating existing annual African/Caribbean Cultural Events: cultural events held in Toronto, for all 2.3.1 Provide financing support businesses in the geographic area referred to as 2.3.2 Provide logistical support (ex. more Little Jamaica; relaxations on parking enforcement) 2.2.9 Implement a pilot project to test the 2.3.3 Make improvements to neighbourhood findings of the Economic Development Study, cleanliness and safety during construction including community-led initiatives to inform the development of a five-year economic 2.3.4 The City should provide public development strategic plan; communications that Eglinton West is a safe place for visitors. 2.2.10 Establish a five-year economic development strategic plan for Little Jamaica in consultation with local residents; BIAs; and Planning Framework Study: community organizations; including targeted Addressing Gentrification: Increasing consultations for Black communities and Black Affordable Commercial Space serving organizations; 2.4.1 Commercial spaces in new developments 2.2.11 Explore options to mitigate the with usable areas over 500sq.m. should include displacement of Black-owned businesses during at 20% of that space to be sold or leased below any future construction, such as establishing market rate; temporary and/or long-term spaces akin to the Business out of the Box (BOB) initiative; 2.4.2 The City should hold Metrolinx accountable to their 2015-2020 Sustainability 2.2.12 Ensure that the City of Toronto’s Strategy, Goal # 5 to “Enhance Community community benefits framework is embedded Responsibility”; in the economic development strategic plan to leverage future economic development 2.4.3 Provide priority for existing businesses opportunities for residents of equity seeking to relocate in commercial spaces within new groups including for: job and opportunities; developments; social procurement; neighbourhood and 2.4.4 Small-scale storefronts should be environmental improvements, and provisions established at the green P lot at Reggae Lane; for accountability, monitoring and reporting; and 2.4.5 The area of new retail spaces should be restricted, so that the spaces can be affordable 2.2.13 Ensure that the economic development and accessible for existing small businesses and strategic plan aligns with the actions outlined in new start-ups. the Toronto Action Plan to Confront Anti-Black Racism, in particular: Addressing Gentrification: Mid-rise Development that Retains Existing • Action 7. Improve the quality Commercial Spaces of recreation services for Black Torontonians; 2.4.6 Include an analysis of the built fabric and urban space of Little Jamaica, that documents • Action 15. Support Black-owned existing commercial places with cultural value; businesses to better compete and thrive in Toronto; 2.4.7 Recommend revisions to zoning bylaws and planning permissions to allow for increased • Action 20. Make City spaces more density on streets adjacent to or intersecting accessible and welcoming to Black Eglinton, and promote mid- rise development Torontonians;
62 on larger lots and sites with less cultural and 2.4.17 Prioritize Little Jamaica when securing or historical significance to the community. making use of funding for affordable housing development and retention obtained from 2.4.8 Recommend policies, guidelines and provincial and federal levels of government; and incentives that preserve existing retail storefronts by encouraging infill development 2.4.18 Expropriate privately-owned lands and incremental additions available for development, and developing non- profit housing or community spaces on those 2.4.9 Suggest zoning and planning revisions sites to allow for less disruptive approaches that achieve the intended outcomes of the Addressing Cultural Erasure Neighbourhood Transition Areas put forth in 2.4.19 Create an inventory and architectural Eglinton Connects, while taking into account study of buildings, urban spaces, and local lot orientations and geometries. businesses of cultural importance to be 2.4.10 Restrict the width of the frontage of new preserved, in collaboration with local Caribbean retail spaces to allow for an animated street businesses and members of Toronto’s wall that encourages pedestrian activity; and Caribbean community;
2.4.11 Develop guidelines for how retail spaces 2.4.20 Create a holistic plan for the design of can be better designed to accommodate culturally significant public spaces throughout physical distancing measures in the event of the boundaries of the study, with the full another pandemic, with the full input of local involvement of local residents. businesses. 2.4.21 Expand Reggae Lane, and the adjacent Addressing Gentrification: Affordable Green P parking space into a formalized public Housing space, to better accommodate programming suggested in “Cultural Events”; 2.4.12 Implement the City’s inclusionary zoning (IZ) policy for all market-rate housing 2.4.22 Design the streetscape and other public developments so that at least 30% of units in spaces in the study area to accommodate new high-density development areas be priced programming and events that specifically below market rate permanently (at rates geared celebrate the Caribbean community and to the median household incomes of existing generate revenue for local businesses local residents); 2.4.23 Leverage funds from the future 2.4.13 In addition to implementing a more Community Benefits Charge to support aggressive IZ policy, forming partnerships culturally inspired improvements to parks and outside of the private sector to develop recreation spaces, and involve the Caribbean housing; community in the visioning and creation of these spaces. 2.4.14 Prioritize the use of public land (ex. Green P parking, Beer Store) for non-profit Addressing Infrastructure and Roadwork housing development, and maximizing 2.4.24 Incentivize construction of seating and opportunities for non-profit developers to build other street furniture along the sidewalks on these sites; and boulevards where possible, to provide a 2.4.15 Provide funds for the preservation and comfortable pedestrian experience; retrofitting of existing affordable rental stock, 2.4.25 Engage local businesses in discussions while enforcing policies to prevent renovictions of how public sidewalks and streetscapes can and eviction due to COVID-19; be improved to better accommodate social 2.4.16 Develop initiatives to integrate new distancing measures in the event of another construction with career development programs pandemic like COVID-19; in the trades;
63 2.4.26 Encourage provision of signage, maps, and directories of Caribbean businesses within LRT stations and the broader transit network to encourage foot traffic from stations to businesses along Eglinton;
2.4.27 Encourage streetscape design that increases pedestrian safety. Streetscape design should consider lighting, separation from traffic, and sightlines for vehicles and pedestrians. Work closely with Black-owned businesses and community members to develop streetscape design; and
2.4.28 Provide guidelines to ensure visual prominence of public spaces and public art from LRT stations to draw foot traffic along the street.
Future Implementation and Phasing
2.4.29 Duration of construction: In each neighbourhood on Eglinton West, the duration of construction should be kept to a minimum. Establish penalties for delayed construction, with proceeds going to businesses affected.
2.4.30 Phasing: Future construction to implement Eglinton Connects should be phased so that disruptions to foot traffic are local and temporary. The city should provide temporary parking locations or relaxations on parking enforcement. The city should also involve Little Jamaica business owners in discussions with regards to the duration and sequence of future construction.
2.4.31 Hoarding and management of construction waste: Contractors must be responsible for keeping sidewalks clean and safe for pedestrians, storing waste and equipment away from public spaces, and ensuring that hoarding as much as possible does not block storefronts. If obstructive hoarding is absolutely needed, then the hoarding should be designed to promote public art and local culture.
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