The demand for urban living is increasing in North American cities, creating a new set of challenges for developers and policy makers. As more people chose high density living, the demand for improved transit service has also grown. To meet this increased need, policy makers, planners and developers are searching for opportunities to maximize the use of existing and planned transit facilities through increased density allowances around public transit stations, referred to as transit oriented development (TOD).

On March 10th, over 200 industry leaders gathered at the Novotel Hotel in the North York City Centre, an area that has witnessed intense residential development over the past decade, supported by by the Yonge and Sheppard Subway lines. Former City of Toronto Chief Planner and Metrolinx Board Member. Paul Bedford, led a discussion of three emerging TOD projects in the GTA. The panelists from Concord Adex, Liberty Development, Greenberg Consultants Inc., Barry Lyon Consultants Ltd discussed the process of building communities that rely on integrating built form and public transportation. The conversation touched on a range of topics including the importance of density to support transit, the impact of development charges on future growth patterns, and the political issues that influence development and transit investment in the GTA.

A TOD area is a mixed-use residential or commercial area designed to maximize access to public transport and incorporates features to encourage transit ridership. A TOD neighbourhood typically has a centre with a transit stop surrounded by relatively high-density development with progressively lower-density development spreading outwards from the center. TODs are generally located within a radius of 400 to 800m from a transit stop, which is considered an acceptable walking distance for users.

The discussion kicked off with Paul Bedford’s review of Metrolinx’s role in shaping transit in Toronto, reviewing the organization’s major initiatives including the Mobility Hub Guidelines and the Big Move. Current activities include the endorsement of an electrified GO system, a long term initiative that will result in increased frequency and environmental improvements, and the airport link which will connect Pearson International Airport to Toronto’s downtown Union Station. Bedford highlighted the need for GO and Metrolinx to adopt the role of developers, instead of simply providers of commuter services. He noted that strong transit nodes in places like Oakville and Weston are prime locations for these organizations to facilitate intensification because “everything is connected.”

Building on this review of the future of transit investment in the GTA, Ken Greenberg and Barry Lyon presented their project, Mississauga Downtown 21. “The only way we can continue to grow meaningfully is in an urban context” says Greenburg, highlighting the need to develop strategies to facilitate the switch from private cars to collective transit. The project team realized the importance of transit service to create urban places. They were able to convince Metrolinx to bring transit service to the heart of Mississauga instead of constructing a direct line from downtown Brampton to Port Credit. With this new jog in the transit line through Downtown Mississauga, an additional 70,000 jobs and 70,000 residential units would be captured in the service catchment.

There has been a long standing lack of commercial development in downtown Mississauga, however Mississauga Downtown 21 envisions the parking lots (common to downtown Mississauga) giving way to mixed use development over time. Images of temporary markets that periodically occupy these spaces were shown, illustrating the interest and potential of using these spaces in a more dynamic manner.

According to Greenburg and Lyon, ideas about mixed-use development are not new in Canada; “we cut our teeth back when developers did everything”. In the 1990s, Canada was exporting ideas about mixed-use development, however in the decade since the industry began operating in silos, developers sticking to one market areas rather than building what is most appropriate for the space. “We need to create places to live and work in reasonably close proximity, or provide good transit between them”. In order to support this vision Greenburg touted: “It’s all about density; we can’t get enough density around transit”.

Steve Nightingale of Concord Adex presented the Park Place project, situated on the new Sheppard Subway Line, as a platform to explore the opportunities and challenges of TOD developments. A former Canadian Tire site, Park Place undertook a significant site reconfiguration to augment density in a manner that would capitalize on the proximity of higher order transit service. The redesigned site also integrates open space elements that can be enjoyed by all residents and the surrounding community. Nightingale identified three key approaches to improving the site plan and increasing density.

1. Parking ratios were a central barrier to density increases, so the design team undertook an Official Plan Amendment to have the ratios lowered by 30%, freeing up more spaces for development and the inclusion of additional softscape treatments, resulting in a reduction in parking for residents and visitors based on the level of transit service available on site.

2. Strategies to increase subway patronage were also used to reduce traffic impacts as well as the need for parking. Building heights were reshuffled to maximize density closest to transit to improve pedestrian access and comfort.

3. Finally, supporting the move to increase transit use, an emphasis was placed on improved pedestrian connections including weather protection, small scale retail, the use of car share amenities, and offering shuttle bus service to the subway and GO stations. Using these strategies a modal split of 50 / 50 is anticipated.

The last speaker of the evening, Marco Filice of Liberty Development shared his work on the World on Yonge located in Markham. This master-planned development includes a low-rise plaza with four residential towers housing 1,200 condo suites, office, hotel and retail space. The density of the site greatly exceeds the requirements of the Places to Grow Act at 125 units per acre. From Filice’s perspective, TOD developments “give cities the tools to keep costs low”. In particular, he suggests that instead of Section 37 benefits, which are a one-time payment for a community amenity, municipalities should exchange additional density for the inclusion of office in new developments. He notes that it is in the interest of municipalities to attract office and retail spaces because of the disproportionate impact it has on the growing the tax base.

In an effort to synthesize the themes of the evening, Paul Bedford identified three common threads:
1. Planning is politics, citing negotiations required with both the community and the City to advance these projects.
2. Density is key, stating that “we’re pretty modest about what our expectations are about density”, indicating there’s room for a more aggressive approach.
3. Financial tools make it happen – we need to identify the strategies to make things happen faster.

TOD development is a key dimension of the GTA’s development future. Developers, planners and real estate professionals are eager to understand opportunities and barriers to bringing a TOD to market. During the event, attendees were asked if they came to the event via transit – only a few hands were raised in response – clearly, we have a long way to go.

Tessa Forest
ULI Communications Committee
IBI Group