danforth avenue study - toronto · acknowledgements the danforth avenue study is the result of the...

Danforth Avenue StudyA framework for Renewal, Reinvestment and Community Development

Final Report April 2006

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The Danforth Avenue Study , Toronto 2006

AcknowledgementsThe Danforth Avenue Study is the result of the efforts of many individuals including

the City of Toronto, TTC staff, members of the broad community including the Local

Advisory Committee, commercial property owners on Danforth Avenue, residents of

the Oakridge Community, representatives of the development community, and ward

area councillors. The ideas and thoughts expressed by those who have taken an

active interest in the study have resulted in an inspiring and compelling Framework for

Community Development for the Danforth Avenue Study.

We would like to acknowledge and thank the following individuals for sharing their

input through meetings and stakeholder working sessions, for contributing to and

participating in the Meetings and the Charette, or for simply taking the time to engage

the project team in conversation about their ideas and thoughts for the future of the

area. We would like to particularly thank the members of the Local Advisory

Committee, a 20 person Committee comprised of local residents, business operators

and Councillor Altobello, who contributed significantly throughout the study and six

meetings to define and refine the Vision for the Avenue.

Consulting Team

Municipal Staff

Urban Strategies Inc., with BA Group, completed the study between November 2004

and June 2005. The study team included Mark Reid, Cyndi Rottenberg-Walker,

Pascale Dionne and Andrew Goodyear from Urban Strategies, Tim Arnott from BA

Group and Ed Watkins and Andrea Reaney from the City. This document outlines the

result of extensive consultation, which included meetings, workshops, presentations

and discuss of key findings, and project recommendations.

Ed Watkins - City Planning, Community Planning

Andrea Reaney - As above

Xue Pei, City Planning - Urban Design

Dipak Dhrona, City Planning - Transportation Planning

Peter Langdon, City Planning - Policy and Research

Sherry Goldstein, as above

Susan Bookbinder, as above

Dave Twaddle, Transportation Services

Ashraf Hanna/Ieuan Jones-Ashton, Technical Services

Michael Saunders, Economic Development, Culture and Tourism

Christy Cook, Parks, Forestry & Recreation

Tiyanne McLean, as above

Sai-Man Lam, as above

Peter Simon, as above

Chris Foster, TTC

Amanda Charrion, Toronto Parking Authority

Mary Ann Gingras, Toronto Public Library

Mario Silva, Toronto District School Board

Barbara Leporati, Toronto Catholic District School Board


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Introduction to the Study“We thank all of those who contributed to the study process”

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PHASE 1| Research and Investigation

Background

Danforth Avenue, the commercial heart of the Oakridge Community, is a long-

established Toronto street that functions as a suburban artery. Although some

traditional pre-war Main Street buildings remain, the Avenue is generally

characterized by low and high-density residential buildings, small commercial plazas

and automobile sales and service. The initial phase of the Study included

conversations with stakeholders and an extensive review of these existing conditions

to fully understand the history, contemporary context, opportunities and constraints

of Danforth Avenue. This review included an analysis of the broader context area;

open space resources; the transportation network; current initiatives, precedents and

areas of change; heritage; key destinations; automotive uses; and the planning

framework. It was determined that:

While there are many open space resources throughout the Study Area,

connections between them, and the quality of the streetscapes generally, could

be significantly improved;

The road network and area parking options function adequately, but conditions

will deteriorate as development along the Avenue intensifies;

The Oakridge Community has been the focus of several recent initiatives and

studies which indicate both the desire and potential for growth;

Apart from a small collection of pre-war buildings, Danforth Avenue has little built

heritage. Heritage exists in the form of land use, particularly auto uses, and

personal legacies, such as the donation of land for parks purposes;

Several commercial, recreation, leisure, entertainment and institutional uses are

located throughout the Community, but these are poorly linked and do not

contribute to a cohesive streetscape;

Auto uses, such as gas stations, sales and service centres, are prevalent along

Danforth Avenue. These detract from the pedestrian experience on Danforth but

they are important economically to the Community.

While policies in the existing Official Plan and Secondary Plan are generally

consistent with and appropriate for the evolution of Danforth Avenue as an

'Avenue', zoning for the area is fragmented and complex and does not present a

clear direction for Danforth Avenue.

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Introduction to the Study

Development Framework

Following the background review, a broad framework for redevelopment was

established to provide a focus for discussions and to target specific areas for

change. Proposed directions for specific redevelopment options included:

Mixed-use buildings, built to the street edge on underutilized Danforth Avenue

sites;

Residential buildings on underutilized sites that abut Danforth Avenue sites;

Park and streetscape enhancements;

A realignment of Danforth Road and Danforth Avenue to create a traditional

four-way intersection and vibrant node and to improve opportunities for

redevelopment on adjacent sites;

Road and path connections to improve the disconnected street network south

of Danforth Avenue; and,

Laneways and parking behind Danforth Avenue development to allow buildings

to frame the street and to separate servicing from other vehicular traffic.

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Executive SummaryPurpose

The Danforth Avenue Study was undertaken from December 2004 to April 2006

to establish a framework for change, as envisioned by the new City of Toronto

Official Plan. The new Official Plan, as a policy, directs that reurbanizing

Avenues will be achieved through the preparation of Avenue studies for strategic

mixed use segments throughout the City. Danforth Avenue, between Victoria

Park and Warden Avenues, is a priority area for an Avenue Study due to its

redevelopment potential on vacant and underutilized lands, and existing areas of

surface parking. The primary objective of the Study is to maintain and improve

the quality of life in the Study Area, which includes all properties fronting onto

Danforth as well as some properties on lands north and south of the Avenue.

The Study is expected to direct physical change incrementally throughout the

next 15-20 years.

Public consultation was integral to and encouraged throughout the Study and

included meetings with the Local Advisory committee established to represent

broad community goals; key stakeholder interviews; public meetings; a public

Design Charrette; and, regular meetings between the Consultant Team, the client

group, the Councillor.

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A diverse Avenue: pedestrian friendly pre-war main street fabric A diverse Avenue: car oriented street with potential for new development

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PHASE 3| Framework for Community Development

The Framework for Community Development is comprised of recommendations for

Danforth Avenue, structured by an appropriate vision and changes to the supporting

design and policy framework. These recommendations are based upon the

discussions and workshops with the community, research and consultant analysis.

The Framework is also guided by the following 10 principles that reflect the tenets of

contemporary planning and the values and priorities expressed by the Oakridge

community and the City of Toronto:

Heritage: Protect and enhance heritage resources

People: Make opportunities for more people to live on the Avenue to support

business development, new community amenities and the evolution of a broader

demographic profile within the community

Balanced Movement: Organize movement and connectivity throughout the study

area to achieve a better balance between pedestrian, vehicular, and other forms of

movement

Parking: Organize parking and examine a parking strategy for the area

Open Space: Connect and enhance the open space system

Distinct Places: Establish a focus on place making to improve the character of the

corridor and create a destination

Development Character: Use development opportunities to restore an urban street

wall, designing buildings to front directly onto the street to strengthen the Avenue’s

pedestrian character

Design Excellence: Promote a high quality of urban design throughout the corridor

Demonstrate Positive Change: Target priority sites for change

Transformation will take time: Foster an environment for private sector investment

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PHASE 2| Design Charette

Design Charette

The Consultant Team, City staff, the Local Advisory Committee and

members of the public participated in a full day Design Charette to explore,

solve and agree upon a clear direction for the future of Danforth Avenue.

The Charette included a presentation by a local Toronto developer and

discussions within small working groups to examine three distinct areas

along Danforth Avenue and explore short and long term interventions.

Although precise directions identified by each of the working groups differed

somewhat for each of the areas, there was significant consensus for

specific changes along the Avenue and throughout the Study Area.

Establish a focus on place making to improve the character of the

corridor and create a destination;

Make Oakridge Park the focal point of the Danforth community and the

historic 'Main Street' fabric the 'Village Centre';

More people need to live on or near the Avenue to support business

development, new community amenities and the evolution of a broader

demographic profile within the community; and,

Diversify and strengthen the commercial retail sector.

Maximum height of new development along all of Danforth Avenue

should range between 5 to 10 storeys;

Height of new development for most of Danforth Avenue should be 5 to

7 storeys, with stepbacks incorporated into building design;

Height at prominent nodes, such as at Danforth Road and at Pharmacy

Avenue, should be 10 to 12 storeys; and,

Height of buildings on adjacent neighbourhood streets and adjacent to

Oakridge Park should be 3 to 4 storeys.

Place Making

Built form

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Design

Transportation and Movement

Open space

Promote a high quality of design excellence and improve the streetscape on

Danforth Avenue;

Protect and enhance the valuable pre-war Main Street fabric; and,

Use development opportunities to repair the street wall

Position transit as a catalyst for positive change and renewal and improve

connection to Victoria Park subway station;

Organize movement and connectivity throughout the study area to achieve a

better balance between pedestrian, vehicular, and other forms of movement;

Add street segments to connect the disjointed road and trail network; and,

Organize parking and examine a parking strategy for the area.

Connect and enhance the open space system.

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Charette participants modeled their vision for Danforth Avenue

The key components of the Framework include the Land Use Plan, General Site Development

Guidelines and Built Form Guidelines, Streetscape and Public Ream Guidelines, the

Transportation and Movement Plan and Implementation. Together they present a

comprehensive set of recommendations for Danforth Avenue and the Study Area and provide

clear guidance for change that will assist the City with the evaluation of development

applications to best strengthen the character, sense of place and attractiveness of the

corridor. Some of the recommendations will be incorporated directly into zoning while others

will be included in Urban Design Guidelines, which may be attached as an Appendix to a new

Secondary Plan. The key recommendations within the Framework are presented in the below.

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Land Use Plan, General Site Development Guidelines andBuilt Form Guidelines

Land Use

Density

Height

Setbacks

Parking

Danforth Avenue: Commercial uses at grade withcommercial uses or multiple family dwellings abovegrade.

Residential Streets: stacked townhouses, duplexes,detached homes.

New auto uses (gas stations, sales centres andservice and repair centres) should not be permitted.

Sites with existing auto uses, where the use is toremain but the site is to be redeveloped, will besubject to the same design standards as otherproperties on Danforth Avenue.

Danforth Avenue: minimum 2.0 fsi; maximum 3.5 fsigenerally; maximum 4.5 fsi at key nodes.

Residential Streets: maximum 2.0 fsi.

Danforth Avenue: minimum 3 storeys; 5 + 2 storeysetback (1.5 metres from the building face) generally;8 + 2 storey setback (1.5 metres from the buildingface) at key nodes.

Residential Streets: maximum 4 storeys.

0.0 metres from the front lot line for buildings frontingonto primary streets.

1.5 metres from the front lot line for buildings frontingonto secondary and local streets.

Not permitted between the edge of the public right ofway and the building face on any street.

Should be located to the rear of the block or withinthe interior of the block or to the rear of a property.

Parking areas should be screened from view with aminimum 0.6 metre landscape buffer, with aminimum height of 0.6 metres and a maximum heightof 1.0 metres.

Access/Laneway

Primary Streets

Parks

Vehicular ParkingSupply Strategy

Direct vehicular access onto primary streets should bediscouraged.

Access to surface parking areas should be fromsecondary streets or a rear laneway.

A contiguous and connected private laneway systembehind Danforth Avenue should be created as a servicecorridor.

Main pedestrian corridors within the study area whichaccommodate more intensive forms of development andinclude Danforth Avenue, Danforth Road, Victoria ParkAvenue and Warden Avenue.

Danforth Avenue: 5.5 metre public pedestrian zoneoccurring from the curb edge to the edge of the publicright of way.

Danforth Avenue: 0.0 metre minimum streetscapesetback between new development and the edge of thepublic right-of-way.

Propose 9.4 acres of open space in new and existingparks throughout the Study Area.

Oakridge Park and Madelaine Park should be focal pointsfor the community

Streetscape and Public Ream Guidelines

Transportation and Movement Plan

iiiThe Danforth Avenue Study , Toronto 2006

Residential Tenant:Adopt a “bedrooms per unit” based approach to tenantparking supply: 0.3 stalls per bachelor unit; 0.7 stalls per 1bdrm unit; 1.0 stalls per 2 bdrm unit, and 1.2 stalls per 2+bdrm units

Residential Visitor:0.2 stalls per unit initially, with consideration for 0.13 stallsper unit as area public parking becomes available -supporting justification required

Office Commercial:Maintain “Reduced” parking standards option in existingOakridge Community By-law modify requirements for GFA >1,000 square metres for office parking to a minimum of 2.5stalls per 100 square metres of GFA

Retail Uses:1 stall per 80 square metres of GFA; any parking proposed inexcess of this amount would have to be provided withinmunicipally operated parking facilities

Restaurant Uses:1 stall per 33 square metres of GFA; any parking proposed inexcess of this amount would have to be provided withinmunicipally operated parking facilities

Maintain existing minimum by-law supply rates for remainingland uses in Oakridge Community By-law; any parkingproposed in excess of this amount would have to beprovided within municipally operated parking facilities

Adopt Shared Parking Principles similar to City ofMississauga standards achieves slightly higher office ratesduring weekday afternoon periods relative to City of Torontostandards.

Maximize On-street Paid Parking along Danforth corridor

Consider Permit Parking system for residential side streets

Any commercial parking proposed in excess of the minimumrequirements set out herein would have to be provided withinmunicipally operated parking facilities.

Staff should recommend for Council approval a wellunderstood, publicly acceptable method for the provision ofarea public (municipal) parking coincident with the adoptedZoning recommendations provided for herein.

Vehicular ParkingSupply Strategy

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Background to the Study

Research and Investigation

Documentation of the Design Charette

Framework for Community Development

Implementation

Phasing diagram

Study area (focus area and area of influence)three scales of investigationexisting open spacelinked open space networktransportation networkcurrent initiativeskey places and destinationsexisting conditionsautomotive usesareas of changestreet wall diagramofficial planzoningdevelopment framework

Victoria Park to Wanstead AvenueWanstead Avenue to Leyton AvenueLeyton Avenue to Warden Avenue

The VisionLand use planUrban design planBuilt form guidelines axonometricPrimary building elements axonometricVertical relief and articulation along street frontage axonometricTypical Mid-block section (pre-war fabric Main Street)Typical Mid-block section (mixed-use development node)Streetscapes and Public Realm Improvements planPrimary Streetscape Section at Danforth Avenue and Danforth RoadPrimary Streetscape Section at Danforth Avenue and August AvenuePublic Realm axonometricTransportation and movement plan

Municipal Real Estate Investment PlanCommunity Improvement Project Area Boundary

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CommunityImprovement Plan

Land Acquisitionand Disposition

Peer Review

Section 37

Increase boundaries of the existing CommunityImprovement Plan Area to extend improvementsthroughout the Study Area.

Acquire land to complete a street south of DanforthAvenue, connecting Coventry Street, Mansion Avenueand Lucy Avenue.

Acquire and dispose of land to re-align Danforth Road tocreate a traditional four way intersection with DanforthAvenue.

Acquire certain lands throughout the Study Area for publicparking facilities.

Acquire and dispose of land to reconfigure Oakridge Parkand add a community centre.

Adopt an architectural and design peer review process forsignificant new developments along Danforth Avenue.

For development proposals which exceed the permittedheight and/or density along Danforth Avenue, use Section37 of the Planning Act to secure certain public benefitsincluding, land for public parks, public realm andstreetscape improvements and new community servicesand facilities.

Implementation

The Danforth Avenue Study provides the basis for the creation of Urban Design

Guidelines and changes to the planning framework, specifically the Scarborough

Official Plan, the Oakridge Community Secondary Plan and the applicable Zoning By-

law. With implementation of the Study's recommendations, commitment of municipal

leaders and support from the community, Danforth Avenue can be a vibrant and

beautiful Avenue.

Establish a private, rear laneway system across eachdevelopment block to minimize impact upon DanforthAvenue public realm, to improve vehicular mobility in thearea, to maximize on-street parking opportunities, and tofacilitate on-site circulation characteristics.

Complete public road network south of Danforth Avenue tofacilitate vehicular, bicycle, and pedestrian connectivity.

Realign key intersections in Study Area to improve pedestriancrossing conditions and facilitate adjacent developmentopportunities.

Ensure appropriate pedestrian crossing times are provided atStudy Area signalized intersection.

Consider reduced Rights-of-Way along new public roadsegments adjacent to public land.

Extend existing bicycle routes/lanes within Study Area toprovide greater non-auto travel opportunities.

Increase on-street bicycle parking opportunities alongDanforth Avenue post and ring bike racks.

On-site bicycle parking requirements similar to the FormerCity of Toronto should be implemented within developmentsin the Study Area.

Mid-block pedestrian crossing locations should be reviewedin the context of future planned uses within the public right-of-way along Danforth Avenue.

Transit improvements along the Danforth corridor would besupportive of the planned residential and non-residentialdensities. The proposed Avenues plan is consistent with anddoes not preclude potential future Higher Order Transitservice along this corridor.

Private Laneway System

Public Road Strategies

LIST OF DRAWINGS

1.1

1.2

1.3

1.4

1.5

Study Purpose and Key Municipal Goals

The Local Advisory Committee

The Project Team

Study Process and Summary of Method

Summary of Consultation

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Documentation ofBackground to the Study

Research and Investigation Framework for

Implementation

4.1

4.2

4.3

4.4

4.5

4.6

4.7

Emerging Principles

The Vision

The Vision Components

Land Use Plan

Urban Design Plan and Built Form Guidelines

Streetscape and Public Realm Guidelines


4.5.1

4.5.2

General Site Development Guidelines

Built Form Guidelines

4.6.1

4.6.2

4.7.1

4.7.2

4.7.3

The Streetscapes

The Public Realm

Vehicular, Bicycle, Pedestrian and Transit Movements

Access to, and Circulation on, Private Development Parcels

A Vehicular Parking Strategy for the Study Area

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3.1

3.2

3.3

3.4

3.5

Overview and Objectives

Structure

Group 1: Macey Precinct Area and Madelaine Park

Group 2: Oakridge Park and Pre-war Main Street

Group 3: Danforth Avenue and Danforth Road

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5.1

5.2

5.3

Policy Changes

Municipal Real Estate Investment Plan

Additional Tools

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the Design Charette

Community Development

PART 1

2.1

2.2

2.3

2.4

2.5

2.6

2.7

2.8

2.9

2.10

2.11

2.12

2.13

2.14

2.15

2.16

2.17

The Study Area

Three Scales of Investigation

Existing Open Space

Linked Open Space Network

Access and Transportation

Current Initiatives

Heritage

Key Places and Destinations

Existing Conditions

Automotive Uses

Areas of Change

Street Wall Diagram

Planning Framework

Precedent Imagery

What We Heard

Development Framework

Preliminary Principles

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PART 2

PART 3

PART 4

PART 5


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Introduction to the Danforth Avenue Study 04

TABLE OF CONTENTS

The is an exciting project for the City and the Danforth

residential and business community. The new Official Plan identifies

Avenues as areas of growth; places where re-urbanization can stimulate

transit supportive 'main street' development. These are the places where

new jobs, housing and a mix of uses are appropriate, and where

development potential can be bolstered by investments in streetscapes,

infrastructure and public amenities. The challenge along the

is to put in place a community endorsed vision and a realistic

implementation strategy that can direct future development to create an

attractive, comfortable, pedestrian oriented urban environment to support an

improved quality of living, retail and community activities along the Avenue.

The Danforth corridor is a priority area for an Avenue Study due to its

redevelopment on vacant and underutilized lands, and existing

areas of surface parking. The primary objective of the study is to maintain

and improve the in the Study Area. The study will direct

physical change incrementally throughout the next 15-20 years in three

ways. It will:

Establish a community based urban design vision and urban design

guidelines;

Focus civic resources to the public realm, streetscapes, open space and

other amenities to support desired change; and,

Recommend changes to the regulatory framework to allow development

to proceed quickly with a degree of design flexibility while continuing to

provide the broader community with a level of certainty about the future

form and character of development.

Avenues Initiative

Danforth

corridor

potential

quality of life

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The City's new Official Plan states that Avenues are important corridors along

major streets where reurbanization can create new housing and jobs while

improving the pedestrian environment, the look of the street, shopping

opportunities and transit service for community residents. Each Avenue is

different in terms of lot sizes and configuration, and a framework for change

will be tailored to the situation of each Avenue through a local Avenue study

that will involve local residents, businesses and other stakeholders for each

Avenue, or sections of longer Avenues.

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04 The Danforth Avenue Study , Toronto 2006

The Land Use Plan

Urban Design Plan and Built Form Guidelines

Streetscape and Public Realm Guidelines


: Implementation

Implementation Recommendations

Municipal Real Estate Investment Plan

Additional Tools

provides direction on the location and extent of distinctive land

uses and densities, establishing the basis for changes to the policy framework

which seek to achieve renewal;

The guide the character and place-

making along the corridor and establish recommendations to organize and structure

the development of primary urban components including the built form, street

system and public realm. The guidelines provide specific criteria to logically

organize, structure and evaluate elements of the built environment to ensure the

creation of a high quality pedestrian friendly and attractive mixed use and

commercial district that is compatible with adjacent neighbourhoods;

The create specific detailed

recommendations for the configuration of the public realm, open space and the

Danforth Avenue streetscape to strengthen the character and amenity of the district

and ensure the creation of an attractive civic setting capable of encouraging desired

private sector reinvestment along the Avenue;

The highlights pedestrian and vehicular access

points, indicates improved connections along Danforth and throughout the Study

Area, articulates parking standards and summarizes related transportation

recommendations.

is comprised of the following components:

which outline changes to the governing policy

and procedure framework necessary to achieve the vision;

which indicates priority land acquisition

and disposition initiatives needed to achieve the vision, balance municipal capital

expenditure within the area, and kick start longer term civic and private sector re-

investment;

which outlines further actions that will guide new development and

support implementation of the vision.

Part V


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05

The Danforth Avenue Study is presented in five parts:

outlines the purpose of the study and broad

municipal goals, describes the Study Area and the existing policy framework, and

presents an overview of the study process, elements and events associated with

the work program and the consultation process.

sets the context for change by providing

an overview of the evolution of the area, describes contemporary existing

conditions, such as open space and automotive uses, and outlines contemporary

challenges, opportunities and potential which provide a clear direction for the

development of key planning principles and a vision to effectively achieve

revitalization along Danforth Avenue and, to a lesser degree, within adjacent

areas.

describes the structure and

results of a one day workshop that engaged participants in the formation of an

interim and long term vision for the renewal and redevelopment of Danforth

Avenue. This event established the basis for Study recommendations as well as

a clear direction for municipal actions and initiatives necessary to support the

vision.

is comprised of the

following components:

which outline broad conceptual objectives for the renewal of

the study area and which should be used to guide development, investment and

decision-making toward long term community building;

and Precinct Areas which translates planning principles, and

community and municipal goals to demonstrate how change and development

should be positioned to achieve a balanced range of opportunities for living,

working, investing and recreating offering residents an improved quality of life

and property and business owners a more vibrant and economically successful

commercial environment;

Part I

Part II

Part III

Part IV

: Background to the Study

: Research and Investigation

: Documentation of the Design Charette

: Framework for Community Development

Planning Principles

The Vision

The growth and redevelopment of the Avenues should be supported by high

quality transit services that extend beyond the study area and by priority

measures for buses and streetcars, combined with urban design and traffic

engineering practices that promote a street that is safe, comfortable and attractive

for pedestrians and cyclists. Ultimately, regulations should encourage high

quality development that includes transit-supportive measures, such as minimum

development densities, to achieve increased transit use.

The City and the TTC may consider the potential for the possible future use of

Danforth Avenue as a Higher Order Transit Corridor. This Study is seen as a

critical component of future Environmental Assessment work along the Avenue. It

identifies constraints with respect to an increased right-of-way for transit use, as

an increase would compromise the desired quality of the public realm which is

necessary to support and complement the level of intensification envisioned by

this study.

danforth avenue study - toronto · acknowledgements the danforth avenue study is the result of the...

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