Davisville Village Zoning Study – Preliminary Report
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STAFF REPORT ACTION REQUIRED Davisville Village Zoning Study – Preliminary Report Date: May 22, 2015 To: Toronto and East York Community Council From: Director, Community Planning, Toronto and East York District Wards: Ward 22 – St. Paul's Reference 15 137248 SPS 00 OZ Number: SUMMARY City Council has directed staff to review the zoning provisions for the lands known as Davisville Village generally bounded by Eglinton Avenue East to the north, Yonge Street to the west, Mount Pleasant Cemetery to the south and Bayview Avenue to the east. This report provides preliminary information for the study including a focused study area, the existing policy context, and the issues to be reviewed. The report also provides an outline of the proposed work plan for the remainder of the study. Planning staff will provide recommendations to Community Council on possible area- specific amendments to the zoning and/or urban design guidelines as necessary. RECOMMENDATIONS The City Planning Division recommends that: 1. Staff be directed to form a community working group which will include City staff, representatives of the local ratepayers' and residents' association, and members of the Ward Councillor's office. Davisville Village Zoning Study Area Focused Study Area (Neighbourhoods) Staff report for action – Preliminary Report – Davisville Village Zoning Study 1 V.03/13 2. Staff be directed to schedule a community consultation meeting for the lands within the Focused Study Area together with the Ward Councillor. 3. Notice for the community consultation meeting be given via a newspaper advertisement. 4. Notice for the public meeting under the Planning Act be given according to the regulations of the Planning Act. Financial Impact The recommendations in this report have no financial impact. DECISION HISTORY At its meeting on August 25, 26, 27 and 28, 2014, City Council requested City Planning to undertake a neighbourhood zoning study of Davisville Village, with appropriate community consultation, and to report back the findings of the study with the proposed zoning changes for the neighbourhood, if appropriate, to a statutory meeting of the Toronto and East York Community Council. The Ward Councillor introduced the motion at Toronto and East York Community Council based on concerns raised by residents and the local ratepayers' and residents' association with regards to the development of new two-storey homes with integral garages, raised first floors and high rear platforms that overlook into adjacent properties. The Ward Councillor's letter to Council and additional information can be found at: http://app.toronto.ca/tmmis/viewAgendaItemHistory.do?item=2014.TE34.200 ISSUE BACKGROUND Study Area Davisville Village is a neighbourhood in Midtown Toronto generally bounded by Eglinton Avenue East to the north, Yonge Street to the west, Mount Pleasant Cemetery to the south and Bayview Avenue to the east. These lands constitute the Davisville Village Zoning Study Area. This study will focus on the portion of Davisville Village (the "Focused Study Area") designated as Neighbourhoods in the Official Plan and will be looked at in two areas. Davisville Village West: the area designated Neighbourhoods in the Official Plan bounded by the south side of Soudan Avenue to the north, just east of Yonge Street to the west, just north of Davisville Street to the south and just west of the Mount Pleasant Road to the east. There are approximately 850 properties within the Davisville Village West portion of the study area. Staff report for action – Preliminary Report – Davisville Village Zoning Study 2 V.03/13 Davisville Village East: the area designated Neighbourhoods in the Official Plan bounded by just south of Eglinton Avenue East to the north, just east of Mount Pleasant Road to the west, the south side of Merton Street (Mount Pleasant Cemetery) to the south and Bayview Street to the east. There are approximately 2,900 properties within the Davisville Village East portion of the study area. Areas excluded from the study include lands designated as Apartment Neighbourhoods, Mixed Use Areas, Parks and Other Open Space Areas in the Official Plan. Both halves of the Focused Study Area are characterized predominantly by 2- and 3- storey detached and semi-detached houses, many of which date back to the 1920s and 1930s, on lots that are predominantly 7.62 metres (25 feet) wide. There are a total of approximately 3,750 properties within the entire area being studied. Recent Development Activity Davisville Village, like many other neighbourhoods throughout the City of Toronto, is experiencing a considerable amount of reinvestment in the form of infill housing. These new houses frequently require variances to the Zoning By-law and seek Committee of Adjustment approval. It has been observed that new construction within the neighbourhood commonly takes the form of detached houses with at-grade integral garages and two levels of living space above. There has been a growing concern that these new homes with integral garages and raised first floors are disrupting the traditional character of the area. Variances associated with this form of development often relate to a number of the following provisions in the zoning by-law: - Building height; - Front, rear and side exterior main wall heights; - Floor space index/gross floor area; - Height of the first floor; - Height of the rear platform; - Side yard setback; and - Front yard soft landscaping. The Committee of Adjustment has refused a number of recent applications, however, many of these refusals are appealed to the Ontario Municipal Board and approved in a similar form. Purpose of the Study The purpose of the study is to review the existing zoning standards for new residential development within the Focused Study Area and to provide recommendations to Community Council on possible amendments to this planning framework. Staff report for action – Preliminary Report – Davisville Village Zoning Study 3 V.03/13 POLICY CONTEXT Provincial Policy Statement and Provincial Plans The Provincial Policy Statement (PPS), 2014 provides policy direction on matters of provincial interest related to land use planning and development. These policies support the goal of enhancing the quality of life for all Ontarians. Key policy objectives include: building strong healthy communities; wise use and management of resources; and protecting public health and safety. The PPS recognizes that local context and character is important. Policies are outcome-oriented, and some policies provide flexibility in their implementation provided that provincial interests are upheld. City Council's planning decisions are required to be consistent with the PPS. The Growth Plan for the Greater Golden Horseshoe provides a framework for managing growth in the Greater Golden Horseshoe including: directions for where and how to grow; the provision of infrastructure to support growth; and protecting natural systems and cultivating a culture of conservation. City Council's planning decisions are required to conform, or not conflict, with the Growth Plan for the Greater Golden Horseshoe. Official Plan The City's Official Plan designates the lands within the Focused Study Area as Neighbourhoods on Map 17 – Land Use Plan. Neighbourhoods are considered physically stable areas and are made up of low scale residential uses along with parks, schools and local institutions. The stability of the physical character of Neighbourhoods is one of the keys to Toronto's success. Policies and development criteria aim to ensure that physical changes to established neighbourhoods are sensitive, gradual and generally "fit" the existing physical character. Development criteria in Section 4.1.5 of the Official Plan state that "development in established Neighbourhoods will respect and reinforce the existing physical character of the neighbourhood, in particular: a. Patterns of streets, blocks and lanes, parks and public building sites; b. Size and configuration of lots; c. Height, massing, scale and dwelling type of nearby residential properties; d. Prevailing building type(s); e. Setbacks of buildings from the street or streets; f. Prevailing patterns of rear and side yard setbacks and landscaped open space; g. Continuation of special landscaped or built-form features that contribute to the unique physical character of a neighbourhood; and h. Conservation of heritage buildings, structures and landscapes" and that "no changes will be made through rezoning, minor variances, consent or other public action that are out of keeping with the physical character of the neighbourhood." Staff report for action – Preliminary Report – Davisville Village Zoning Study 4 V.03/13 Section 4.1.8 states that: “Zoning by-laws will contain numerical site standards for matters such as building type and height, density, lot sizes, lot depths, lot frontages, parking, building setbacks from lot lines, landscaped open space and any other performance standards to ensure that new development will be compatible with the physical character of established residential Neighbourhoods.” The City of Toronto is in the process of conducting a Five-Year Official Plan Review. As part of this review City Planning staff has formulated draft policies for the Official Plan including new and revised policies that guide development within Neighbourhoods. At its July 8, 2014 meeting, Council adopted the report from the Chief Planner and Executive Director entitled ‘Official Plan Review: Draft Policies for Healthy Neighbourhoods, Neighbourhoods