33 Gerrard Street West and 22 Elm Street – Zoning Amendment …€¦ · The applicant is...

STAFF REPORT ACTION REQUIRED

33 Gerrard Street West and 22 Elm Street – Zoning Amendment Application- Preliminary Report

Date: December 10, 2015

To: Toronto and East York Community Council

From: Director, Community Planning, Toronto and East York District

Wards: Ward 27 – Toronto Centre-Rosedale

Reference Number: 15 230523 STE 27 OZ

SUMMARY This application proposes the construction of four towers (80, 50, 74 & 46 storeys) and one 6-storey mid-rise structure featuring a mix of residential, hotel, commercial, office and retail uses at 33 Gerrard Street West and 22 Elm Street. The five new buildings would be oriented along an east-west mews that will reconnect the east and west ends of Walton Street, and a north-south pedestrian walkway connecting Gerrard to Elm Street. A total of 1,897 residential units, 300 hotel rooms and 7,884 m2 of office/retail space are proposed. The total gross floor area would be 164,306 m2. This report provides preliminary information on the above-noted application and seeks Community Council's directions on further processing of the application and on the community consultation process. It is anticipated that a Community Consultation meeting will be held in the first quarter of 2016. Staff anticipate submitting a final report on the application to Community Council in the fourth quarter of 2016. This target date assumes that the applicant will provide all required information in a timely manner.

Staff report for action – Preliminary Report - 33 Gerrard Street West and 22 Elm Street 1

RECOMMENDATIONS The City Planning Division recommends that: 1. Staff be directed to schedule a community consultation meeting for the lands at 33

Gerrard Street West and 22 Elm Street together with the Ward Councillor. 2. Notice for the community consultation meeting be given to landowners and residents

within 120 metres of the site. 3. Notice for the public meeting under the Planning Act be given according to the

regulations of the Planning Act. DECISION HISTORY

Pre-Application Consultation A number of pre-application meetings were held with the applicant during which the applicant introduced their proposal, staff itemized application submission requirements and identified initial concerns and issues with the proposed development. No changes were made to the proposal which was submitted as an application. ISSUE BACKGROUND

Proposal The applicant is proposing to redevelop the site by introducing (or re-establishing) Walton Street as a west-east privately owned vehicular corridor (mews) and bisecting the site in a north-south direction with a new pedestrian walkway. This would result in four separate development blocks. Northwest block would be developed with a tower-base form entailing a 6-storey podium with 50-storey tower (153.35m excluding mechanical penthouse, 163.35m including mechanical penthouse).


Land use Retail first two floors, 480 residential units above with amenity space

Tower setback to - north property line - west property line - east tower - south tower at 38-40 Elm

5.38 m 3 36.51 32

Tower footplate (approximate) 750 m2 Podium setback to

- north property line - west property line - east podium - south podium

2.38 m 0 9.1 15.81

Tower stepbacks Varies from 3.5 to 4 m Northeast block would feature a 6-storey podium and 80-storey tower (241.85m excluding mechanical penthouse, 251.85m including mechanical penthouse).

Land use Retail first two floors, 737 residential units above with amenity space

Tower setback to - north property line - west tower - east property line - south tower

5 m 36.51 5 21

Tower footplate (approximate) 550 m2 Podium setback to

- north property line - east property line - west podium - south podium

2.38 m 1 9.1 15.33

Tower stepbacks North and south side aprox. 3.5 m. East side varies from 3 to 6m. West side varies from 30 to 35 m

Southeast block would include two towers above a 4-storey podium. The towers would be 74 stories (227.3 m excluding mechanical penthouse, 237.3 m including mechanical penthouse).and 46 stories (144.7 m excluding mechanical penthouse, 154.7 m including mechanical penthouse) in height.


Land use Hotel/restaurant and loading first 3 floors, 3 floors amenity space, hotel floors 6-30 in one tower with residential above (128 units) and residential in other tower (552 units)

Tower setback to - north tower - east property line - west tower at 38-40 Elm - south property line - between towers

21 m 4.5 36 7 20.25

Tower footplates (approximate) 566 m2 and 566 m2 Podium setback to

- north podium - west podium - east property line - south property line

15.33 m 11 0.8 0

Tower stepbacks North side 3 m, west 2.5 m, east 4.58 m, south 7 m

Southwest block would be a 6-storey (29.25 m) mid-rise structure.

Land use Retail first two floors and office/commercial above

Podium setback to - north podium - west property line - east podium - south property line

15.81 m 0 11 0

Stepbacks Partial stepback at 4th floor on west side

The overall development would include 1,897 residential units, 300 hotel units and 7,884 m2 of office/retail space. Total gross floor area would be 164,306m2 which is equivalent to a Floor Space Index of 17.51 under Zoning By-law 569-2013 (the FSI would be approximately 20 if the proposed Walton Street mews was netted out of the calculation).

Vehicular and bicycle parking, in addition to various servicing functions, is proposed in a 4-level underground parking structure which would encompass the entirety of the site. Access would be from 4 separate ramps; one fronting Elm Street, one fronting Gerrard Street and two from the proposed new Walton Street corridor (mews). The application references the potential for a PATH extension to the Aura development on the north side of Gerrard Street.


Other details of the proposal are shown in Table 1 below and in Attachment 4 Table 1 – Summary of Application Category Proposed Ground floor height (approximate) 4 m Sidewalk width (approximate) - Gerrard Street - Walton Street mews - North-south pedestrian link - Elm Street

4 m 4 m each side (8 m total) 9.1 to 11 m 4.5 m

Vehicular parking - Visitor - Resident - Auto-share

244 346 0

Bicycle parking - Resident - Visitor

1,742 220

Loading spaces - Type G - Type B - Type C

1 1 2

Amenity space - Indoor - Outdoor - Shared hotel/residential

2,199 m2 2,622 m2 1,756 m2

Site and Surrounding Area The site approximates an L-shape and consists of 2 separate property addresses; 33 Gerrard Street West and 22 Elm Street. The site has 23 m frontage on Elm Street, 99 m on Gerrard Street, 15 m on Walton Street (west side of property) and 56 m frontage on the combined Walton Street and adjacent laneway (east side of property). The total lot area is 9835 m2. The site is fully developed with a 26 and a 27-storey slab tower with associated driveways and outdoor amenity areas and operated as the existing Chelsea hotel. There are 1,590 suites in the existing hotel in addition to hotel amenity and conference room space. Adjacent to the Gerrard street frontage there is an existing ramp to the underground parking which is located within the municipal right-of-way. The surrounding uses are as follows: North: to the northeast a 78-storey development (Aura) with a 4 to 9-storey podium featuring a

mix of residential and commercial uses; to the northwest a 19-storey slab style residential building

South: 3 to 4-storey heritage commercial buildings


West: 44-storey residential buildings on the Gerrard Street frontage (under construction), the

end portion of Walton Street and an approximate 34-storey residential building adjacent to the Elm Street frontage

East: 2 to 3-storey commercial buildings some of which are heritage, the end portion of Walton

Street and adjacent laneway system

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. Staff will review the proposed development for consistency with the PPS and for conformity with the Growth Plan for the Greater Golden Horseshoe.

Official Plan This application will be reviewed against the policies in the Official Plan including Official Plan Policy 3.3 Building New Neighbourhoods. This policy indicates the need for a comprehensive planning framework when developing new neighbourhoods and that new neighbourhoods must function as a community and not just housing. In this application, the new neighbourhood is a vertical neighbourhood. The Official Plan places the site within the Downtown and Central Waterfront urban structure area. The site is designated “Mixed Use Areas” on Map 18 – Land Use Plan in the Official Plan. This designation permits a range of residential, commercial and institutional uses. The Plan includes criteria that direct the form and quality of development in this land use designation. The criteria state that new buildings: provide a transition between areas of different intensity and scale, including a stepping down of heights towards lower scale neighbourhoods; minimize shadow impacts; and provide an attractive, safe and comfortable pedestrian environment. This application will be reviewed against the policies in the Official Plan including those in the “Downtown”, “Public Realm”, and “Built Form” sections of the Plan. Compliance with other relevant policies of the Official Plan including environment and transportation will also need to be addressed. Other key policies that are applicable to this development include: Policy 4.8.4 which states that buildings will be sited and massed to protect hospital helicopter flight paths,


Policy 2.4.12 which states that hotels will make provisions for taxi stands on private property and Policy 3.1.1.15 which states new streets should be public street, but when private should be designed to integrate into the public realm. The proposed development site is adjacent to a number of heritage designated and heritage listed properties including: 8-12 Elm, 14 Elm, 18 Elm, 362-364 Yonge, 372 Yonge, 374 Yonge, 376 Yonge and 378-380 Yonge. Policy 3.1.5.5 of the Official Plan (approved as part of Official Plan Amendment 199) requires that development adjacent to a property on the Heritage Register will ensure that the integrity and attributes of those properties will be retained. This is expanded on by Policy 3.1.5.26 which refers to conserving the cultural heritage values, attributes and character and to mitigate visual and physical impacts.

Zoning The site is subject to City-wide Zoning By-laws 438-86 and 569-2013. The site has a split zoning under By-law 438-86, the northern portion is zoned CR T7.8 C2.0 R7.8 and the southern portion is zoned CR T6.0 c2.0 R6.0. Under Zoning By-law 569-2013 the site also has a split zoning. The northern portion is zoned CR 7.8 (c2.0; r7.8) SS1 (x2195) and the southern portion is zoned CR 6.0 (c2.0; r6.0) (x2318). Both By-laws permit a variety of commercial and residential uses with a maximum density of 7.8 times the site area for the northern portion of the site and 6.0 for the southern portion of the site. The maximum building height would be 61 metres for the northern portion of the site and 46 metres for the southern portion under both By-laws. By-law 438-86 also includes a number of Permissive and Restrictive Exceptions and references site specific By-law 440-85 and 333-02. Key provisions include required street related retail and service uses, angular plane setback provisions, restrictions on entertainment and place of amusement uses, prohibition on commercial parking and protection of helicopter flight paths. By-law 440-85 is a site specific by-law permitting the existing hotel development in addition to designating both a north-south and east-west pedestrian linkage though the site. These provisions were generally carried though into By-law 569-2013.

Site Plan Control The subject site and proposed development are subject to Site Plan Control. An application has not yet been submitted.

City-Wide Tall Building Design Guidelines In May 2013, Toronto City Council adopted the updated city-wide Tall Building Design Guidelines and directed City Planning staff to use these Guidelines in the evaluation of all new and current tall building development applications. The Guidelines establish a unified set of performance measures for the evaluation of tall building proposals to ensure they fit within their context and minimize their local impacts. The city-wide Guidelines are available at http://www.toronto.ca/planning/tallbuildingdesign.htm.


Of particular relevance to this application is Guideline 1.2 which would set out a planning and design framework to guide development of large or complex areas with multiple tall buildings, new streets or parks.

Downtown Tall Buildings: Vision and Supplementary Design Guidelines This project is located within an area that is also subject to the Downtown Tall Buildings: Vision and Supplementary Design Guidelines (adopted by City Council in July 2012 and consolidated with the city-wide Tall Building Design Guidelines May 2013). This document identifies where tall buildings belong Downtown, and establishes a framework to regulate their height, form and contextual relationship to their surroundings. Gerrard Street is identified as a High Street; Elm Street and the western portion of Walton Street are identified as Secondary High Streets. Maximum heights along Gerrard would be in the 62m to 107m (20 storey to 35 storey) range and would be one third lower for Elm and Walton. The Downtown Vision and Supplementary Design Guidelines should be used together with the city-wide Tall Building Design Guidelines to evaluate new and current Downtown tall building proposals. The Downtown Tall Buildings Guidelines are available at http://www.toronto.ca/planning/tallbuildingstudy.htm#guidelines

TOcore On May 13, 2014, the Toronto and East York Community Council (TEYCC) considered a Staff Report regarding TOcore: Planning Toronto's Downtown, along with a related background document entitled Trends and Issues in the Intensification of Downtown. Both reports are available at: http://www1.toronto.ca/wps/portal/contentonly?vgnextoid=222101f2e9745410VgnVCM10000071d60f89RCRD.

TOcore is looking at how Toronto's Downtown should grow, with both a renewed planning framework and the necessary infrastructure to remain a great place to live, work, learn and play. TOcore is in its initial 'taking stock' phase, which involves an analysis of existing conditions, growth trends and priority issues in the Downtown. The results of Phase One and the priorities for Phase Two, "Planning and Analysis" are the subject of an October 23, 2015 report adopted by City Council on December 9/10, 2015. The review of this application will be informed by the issues being considered under TOcore.

Reasons for the Application The proposal requires an amendment to the Zoning By-law for an increase in density and height. Additional areas of non-compliance may be identified through the circulation and review process. COMMENTS

Application Submission The following reports/studies were submitted with the application:


- Planning& Urban Design Rationale including a Community Services and Facilities Study - Functional Servicing and Conceptual Stormwater Management report - Urban Transportation Considerations study - Pedestrian Level Wind Study - Shadow Studies (included with the architectural plans) - Noise and Vibration Feasibility Study - Heritage Impact Assessment - Preliminary Geotechnical Study - Draft Zoning By-law Amendments (438-86 and 569-2013) - Toronto Green Standard Checklist - Tree Inventory and Preservation Plan Report - Development Impact Study - Project Massing Model

A Notification of Complete Application was issued October 26, 2015. This Notice states the date of complete application was October 2, 2015. The Notice also states that a clearer, more detailed site plan should be submitted as part of the application.

Issues to be Resolved The scale and density of the proposed development is of such a magnitude and represents such a departure from the density and scale of the area that a more fulsome review is required. This review should assess the surrounding area, including nearby applications on Yonge Street, in order to establish an appropriate planning framework and assess the physical and social infrastructure necessary to maintain this area as a complete community. In addition, the following issues will need further review and will need to be addressed by the applicant: Key Issues related to the Overall Development

- Consistency with the Provincial Policy Statement and the Growth Plan for the Greater Golden Horseshoe particularly as it relates to providing managing and directing land use to achieve efficient and resilient development and land use patterns;

- The need to undertake a Master Planning/Planning Framework exercise given the

proposal entails the establishment of a significant new vertical neighbourhood within the heart of the City;

- Appropriate number of towers the site can accommodate given site limitations, on site park requirements and public street right-of-way requirements;

- Confirmation there is sufficient sewer and water capacity to service the proposed

development; - Need for a phasing plan and potential Holding provisions for any implementing By-law;


- Appropriateness of providing cash-in-lieu of parkland as opposed to an on-site parkland

dedication; and

- Adequacy of community services and facilities in the area and the need for on-site services and facilities;

Site Specific Issues

- Conformity with Official Plan policies particularly with respect to built form, setbacks

and shadowing of nearby Neighbouroods and Parks designated lands, in addition to impacts on heritage listed properties;

- Conformity with the Tall Buildings Design Guidelines and the Downtown Tall Buildings:

Vision and Supplementary Design Guidelines, including sections on transition in scale, tower separation distances, step backs and setbacks and public realm;

- Confirmation that building heights do not interfere with the Hospital for Sick Kids

helicopter flight paths and do not impact the protected View Corridors from old City Hall (OPA199); and

- Treatment of the ground floor of the building and its relationship to the streetscape, the

width of the sidewalk, the proposed mews and pedestrian linkage including an assessment for a potential PATH connection;

- Appropriateness of the proposed reduced on-site parking provision;

- Assessment of traffic generation, proposed driveway locations and impact on the existing street network with the proposed development of the Walton Street mews; Need to confirm if proposed Walton Street mews should be a public right-of-way or private mews and what should be its appropriate functionality;

- Confirmation that there are sufficient loading facilities for all of the buildings in the

development including those without direct access to the loading facilities;

- Adequacy of the proposed amenity space and more specifically the reduced provision for outdoor amenity space and the appropriateness of sharing a portion of the indoor space with the hotel;

- Appropriate number of affordable housing and three bedroom units;

- Appropriate ways to address Public Art Plan; and

- Identification and securing of public benefits pursuant to Section 37 of the Planning Act

should the proposal be recommended for approval.


The TGS Checklist has been submitted by the applicant and is currently under review by City staff for compliance with the Tier 1 performance measures. Additional issues may be identified through the review of the application, agency comments and the community consultation process. CONTACT Derek Waltho, Planner Tel. No. 416-394-8206 E-mail: [email protected] SIGNATURE _______________________________ Gregg Lintern, MCIP, RPP Director, Community Planning Toronto and East York District (P:\2016\Cluster B\pln\TEYCC\27358083083.doc) - vc ATTACHMENTS Attachment 1: Site Plan Attachment 2: Elevations Attachment 3: Zoning Attachment 4: Application Data Sheet


Attachment 1: Site Plan


Attachment 2: Elevations


Attachment 3: Zoning


Attachment 4: Application Data Sheet

Application Type Rezoning Application Number: 15 230523 STE 27 OZ Details Rezoning, Standard Application Date: September 30, 2015 Municipal Address: 33 GERRARD ST W Location Description: CON 1 FB PT PARK LOT 9 PLANS D4 236E & WALTON ST CL RP 63R-3114 PART 3

4 **GRID S2711 Project Description: Proposal to construct 4-towers (80, 50, 74 & 46 storeys) and one 6-storey mid-rise structure

featuring a mix of residential, hotel, commercial, office and retail uses. The five new buildings would be oriented along an east-west mews that will reconnect the east and west ends of Walton Street, and a north-south pedestrian walkway connecting Gerrard to Elm.

Applicant: Agent: Architect: Owner:

GOODMANS LLP MARK NOSKIEWICZ

Architects Alliance GREAT EAGLE HOTELS (CANADA) LIMITED

PLANNING CONTROLS

Official Plan Designation: Mixed Use Areas Site Specific Provision: By-law 440-85 and 333-02 Zoning: north portion south portion

CR 7.8 (c2.0; r7.8) SS1 (x2195) CR 6.0 (c2.0; r6.0) (x2318)

Historical Status: n/a

Height Limit (m): 61 Site Plan Control Area: Yes

PROJECT INFORMATION

Site Area (sq. m): 9835 Height: 80 st (252m); 50st (164m) Frontage (m): 98.82 74st (237m); 46 st (155 m) Depth (m): 120 Total Ground Floor Area (sq. m): 6298 Total Total Residential GFA (sq. m): 139289 Parking Spaces: 590 Total Non-Residential GFA (sq. m): 25017 Loading Docks 4 Total GFA (sq. m): 164306 Lot Coverage Ratio (%): 67 Floor Space Index: 17.51

DWELLING UNITS FLOOR AREA BREAKDOWN (upon project completion)

Tenure Type: Condo Above Grade Below Grade Rooms: 0 Residential GFA (sq. m): 139289 0 Bachelor: 235 Hotel GFA (sq. m): 17133 0 1 Bedroom: 954 Office/Retail GFA (sq. m): 7884 0 2 Bedroom: 590 Industrial GFA (sq. m): 0 0 3 + Bedroom: 118 Institutional/Other GFA (sq. m): 0 0 Total Units: 1897

CONTACT: PLANNER NAME: Derek Waltho, Planner TELEPHONE: 416-392-0412


33 Gerrard Street West and 22 Elm Street – Zoning Amendment …€¦ · The applicant is...

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