Toronto’s Green Development Standard: Designing the Built Environment with Biodiversity in Mind

By Jane Weninger
November 2024

The Toronto Green Standard is a set of sustainable performance requirements for new private and city- owned development that includes biodiversity performance measures. Toronto’s experience in developing and implementing the Toronto Green Standard may be helpful to other cities interested in creating site and building standards to support biodiversity in their own jurisdictions.

We live in an increasingly urbanized world. Most of the world’s population now lives in cities and urban areas are expanding. The impact of urban areas on biodiversity is well documented (e.g., UN’s Global Biodiversity Outlook 5; IPBES Global Assessment Report on Biodiversity and Ecosystem Services). Fortunately, cities around the world are beginning to take action in response to their own observations of local biodiversity loss and scientific studies warning about global biodiversity decline. Initial strategies to reduce biodiversity loss and transform urban areas into more biodiverse places tended to focus on park naturalization, natural feature protection and restoration, and tree planting. More recently, green development has become more common as cities recognize that the built environment can be designed and leveraged to be more sustainable, reduce adverse impacts, and support biodiversity.

The Toronto Green Standard

The Toronto Green Standard (TGS or Green Standard) is one of the tools Toronto uses to achieve its environmental priorities, to ensure that “city building will be environmentally friendly”, and to help reduce future infrastructure demand. It is a key strategy in achieving the city’s Net Zero Strategy, which has a target of net zero greenhouse gas emissions by 2040. Developed in concert with the building and landscape industry, it is based on defensible performance measures, legislative authority, cost-benefit considerations, stakeholder consultation, leadership opportunities, and a process of incrementally increasing performance standards over time. This “made in Toronto” approach has enabled the Green Standard to gain credibility and acceptance from a variety of different sectors, accelerate action to address climate change, enhance resilience, and support biodiversity. Toronto’s experience in developing and implementing the Green Standard may be helpful to other cities interested in creating site and building development practices to help support sustainability and biodiversity and foster a culture of sustainability in their own jurisdictions.

Identifying Performance Measures

The TGS identifies sustainable performance requirements across five categories: air quality; building energy, emissions, and resilience; water quality and efficiency; ecology and biodiversity; and waste and circular economy. The specific performance measures vary based on building ownership type and building typology (city-owned residential and non-residential; private low-rise residential; and private mid to high-rise residential and private non-residential), and performance level (Tiers 1-3). Tier 1 identifies minimum performance measures that are mandatory for all new development and secured through the planning approval process. Tiers 2-3 identify higher performance levels that are voluntary and go beyond what can normally be required through the development process. Projects that demonstrate levels of performance above the Tier 1 minimum requirement are eligible for a partial refund of development charges.

The performance measures are based on the city’s Official Plan, existing regulations, and targets adopted by the Toronto City Council. Initial performance measures were developed after a study of Toronto’s unique environmental pressures and urban characteristics. Also considered in developing the initial measures were private rating systems, such as Leadership in Energy and Environmental Design (LEED) and Green Globes, and the experiences of selected cities in implementing similar measures. The performance measures are also aligned and integrated with existing regulations and targets that support sustainability. For example, the performance requirements for energy use and greenhouse gas emissions are aligned with Toronto’s target to achieve net zero by 2040 by setting out a path to require buildings constructed in or after 2030 to be near zero (see “Raising the Bar” below). In a similar way, the Toronto Green Roof Bylaw, which applies to new commercial, institutional, and residential construction over a certain size, is integrated into the performance measure for stormwater management as one of the strategies to achieve water balance, quality, and quantity control for new development.

Legal Authority

Prior to applying the TGS to private development, an extensive legal review was undertaken to confirm the city’s legislative authority. In Ontario, the province’s Planning Act identifies responsibilities that municipalities must consider, which include:

•      protection of ecological systems;
•      supply, efficient use, and conservation of energy and water;
•      minimization of waste; and
•      promotion of development that is sustainable, supports public transit, and is pedestrian-oriented.

In addition, the City of Toronto Act provides the city with powers to address the sustainable design of the exterior of buildings and elements in the adjacent right-of-way.

Based on these, and other authorities, the legal review determined that Toronto could secure most of the environmental performance measures identified in the Green Standard. Where the city did not have authority, such as requiring energy efficiency measures that exceeded levels set out in the Ontario Building Code, the city sought special authority from the province but was not successful. Other enhanced standards that are outside of what can normally be secured under the Ontario Planning Act, such as those related to embodied emissions in materials, are achieved through a voluntary Development Charge Refund program.

Cost-Benefit Analysis

An initial cost-benefit analysis was undertaken to address developers’ concerns about the costs versus savings of implementing the proposed sustainable performance requirements and to help the city identify appropriate levels of incentives to achieve the voluntary enhanced standards. The study was carried out by the University of Toronto Faculty of Architecture, Landscape, and Design with input from an expert steering committee that included private developers, consultants, and industry experts. The study looked at the capital cost premium associated with applying the TGS, the payback period and other benefits to the development, and the broader economic benefits such as savings from avoided costs in future infrastructure expansion that would result from more energy and water-efficient buildings. The study also considered trends in green development across the region, barriers and opportunities, and the extent to which technologies were readily available to make “green” development achievable.

Consultation with Stakeholders

A key component in the development of the TGS has been a collaboration among the city’s Planning, Forestry, and Water Divisions in the development of performance standards, and early conversations and information sharing with the private sector. As the TGS has evolved, stakeholders affected by changes that are planned for the next version, including city staff, developers, practitioners (e.g., energy modelers, architects, landscape architects), and industry (e.g., window wall and glass manufacturers) are consulted with and/ or provided with advance notice. Involving key parties in the development of standards and/or providing advance notice and opportunities for clarification has helped to develop consensus and create a greater sense of ownership.

Voluntary First

When first introduced in 2006, the TGS was mandatory for new city-owned development and voluntary for new private development. This “voluntary first” approach demonstrated that the city was committed to more sustainable development and that the TGS was feasible to implement. This was an important step in beginning to change the expectations and behavior of city staff and the development community. It also provided a phase-in period for both staff and development proponents. Four years later, in 2010, when new private development was required to meet the minimum performance levels of the TGS, there was broader awareness within the development industry. This approach allowed the development community and city staff to become accustomed to the expectation that new development in Toronto should meet a higher level of environmental performance rather than “business as usual.”

Raising the Bar

A key feature of the TGS is “raising the bar” to accelerate progress towards greater sustainability. The TGS is revised every four years to take into account emerging research and changes in Toronto’s sustainability aspirations, which have increased over time in recognition of the worsening climate and biodiversity crises. Each new version of the TGS must be approved by Toronto City Council.

For example, every four years the bar is raised for building energy and greenhouse gas emissions by making the previous Tier 2 voluntary performance standard the new Tier 1 minimum requirement and introducing a new, higher Tier 2 voluntary standard. In this way, each new version of the TGS moves building performance further along the pathway toward the goal of net zero greenhouse gas emissions. This stepped pathway is laid out on the TGS website allowing developers to plan ahead knowing what requirements and expectations will be in place when their developments are submitted for approval. The accelerated performance levels are based on studies of global best practices in energy codes and standards, and modeling for energy and greenhouse gas reduction for a 2040 net zero emissions date.

Incrementally higher performance levels every four years have played an important role in directing Toronto’s development industry toward higher performance and more sustainable building and site design by encouraging investment and signaling that there will be future market demand for new skills and products. Like any major change in an industry, the evolution of performance levels requires adjustment in the practices and skills of those involved in the planning, development, and construction fields; new products and testing; training and development; and information support. The presence of higher voluntary Tiers also provides an opportunity for interested proponents to be leaders in sustainable building practices and helps drive innovation and market transformation in the industry by demonstrating that higher Tiers of the TGS are achievable. As of 2024, over 4,000 development projects have met Tier 1, 100 have been certified Tier 2, and there are 180 in-process applications that have targeted higher performance standards.

Implementation

The success of TGS rests, in part, on effective implementation. TGS prescribes a set of mandatory performance measures that apply to all new developments over 10 units. This prescriptive approach helps provide consistency and a level playing field. Each performance standard is also supported by specifications and resources that provide additional information such as policy basis, the definition of terms, and details on how to achieve the standard. Implementation is consistent and streamlined by having all performance requirements located in one document and by securing the performance requirements through a “one window” planning approval process administered by the Toronto City Planning Division.

Submission requirements for each development are standardized and include a Green Standard Checklist to be provided as part of a complete application, a project Statistic Template, and an Energy Report. All plans, drawings, and reports submitted as part of the application are required to include notations, illustrations, and legends to clearly demonstrate compliance with the performance measures. These documents then become part of the legally binding site plan agreement. Post-construction audits are undertaken to confirm that buildings and sites have been constructed according to approved plans.

Examples from the Toronto Green Standard that Support Biodiversity

Two examples of biodiversity-related performance requirements from the TGS are described here: bird collision deterrence and natural heritage protection. Information is also provided to illustrate how each performance requirement was developed using the approaches described above.

Bird Collision Deterrence

It has been estimated that about 25 million birds die each year from window collisions in Canada. A disproportionately high number of these fatalities occur in Toronto due to its location adjacent to Lake Ontario at the confluence of the Atlantic and Mississippi Migratory Flyways, and due to the fact that Toronto contains one-third of all tall buildings in Canada.

In 2007, Toronto released bird-friendly development guidelines, which were developed in consultation with local bird advocacy groups, architects, building managers, academics, and the development industry. The first document of its kind in North America, these voluntary guidelines provide a comprehensive list of design principles and strategies that are known to be effective at making new and existing buildings less dangerous to migratory birds.

In 2010, Toronto became the first city in North America to require most new buildings to be designed to reduce bird collisions and mortality. The bird-friendly glazing best practices incorporated into Tier 1 of the TGS specified: the minimum size of, the minimum spacing of, and the surface to which visible markings were to be applied. Since 2010, the Tier 1 glazing requirements have evolved in response to advances in the understanding of bird mortality from collisions with buildings, and input from bird advocates and building industry experts. The 2022 TGS Tier 1 minimum spacing requirement for visible markings has been reduced to 5 cm and the markings are required to be applied to the first (or exterior) surface of the window where they are more visible to birds.

In advance of changes to the TGS Tier 1 glazing requirements coming into effect, city planning staff met with the window wall industry, window manufacturers, architects, passive house experts, and others to advise of the changing performance requirements and to identify any potential conflicts with other TGS requirements such as energy performance. There was broad support for these changes because research has demonstrated that closer spacing and first surface application are the most effective.

There are no provincial or national requirements for bird-friendly window treatment but there is broad-based support for implementing solutions. Both the Canadian Standards Association and the National Glass Association have developed bird-friendly glazing guidelines. The window industry itself has been developing bird-friendly technology for well over a decade. Initially, only a few manufacturers were able to provide bird-friendly window products, which made them more expensive. However, as demand has increased, capacity has expanded, and bird-friendly windows are becoming more cost-effective to manufacture. Although the early TGS performance requirement did not specify first surface of the glass, it was a useful step in the evolution of the TGS because it allowed time for the industry to develop manufacturing capacity and technology to be able to combine bird-friendly markings with energy efficiency coatings on the first surface.

Toronto’s prescriptive approach is recognized for being clear and easy to evaluate, not requiring third-party verification, and allowing for design innovation (e.g., markings do not have to be dots). Window manufacturers and others involved in building development appreciate advance notice of changing performance requirements, opportunities to clarify new requirements, and lead time to plan the production of new window products to meet new standards.

Natural Heritage Protection

Toronto has an extensive ravine system that, together with the shoreline of Lake Ontario, extends into almost every neighborhood in the city. As a result, many development sites abut and include open space that extends into a natural feature. The most recent 2022 version of the TGS includes a Tier 1 performance requirement to plant any landscaped area within or abutting a natural feature with 100% native plants, ensuring at least 50% of those plants come from a regionally appropriate seed source, including trees, shrubs and herbaceous plants. The goal of this requirement is to support local biodiversity within Toronto’s natural features, which are also the city’s most ecologically sensitive areas. To ensure clarity and consistency, the terms native plant species and regionally appropriate seed source are defined in the TGS.

Prior to the new requirement being added to the TGS, two workshops were held with city staff, horticultural and landscape industry representatives, landscape architects, and local biodiversity advocates. These workshops were intended to: make the industry aware of the new requirement that would be coming into effect; encourage applicants and nurseries to work together to ensure that the quantities, quality, species, and seed sourcing of plants specified in stewardship plans will become available; and discuss challenges associated with certifying native and regionally sourced plants in the marketplace. At this time, there is no consistent or convenient way of verifying regionally appropriate seed source and the existing supply chain for regionally sourced plant material might not be adequate. As a result, it is recognized that demand and supply may not align in the short term and that a certification system still needs to be developed. Nevertheless, the TGS requirement for native plants from a regionally appropriate seed source is set to play a role in spurring demand for regionally sourced plant material and in sending an important signal to practitioners and the marketplace that supporting healthy biodiversity in and adjacent to Toronto ravines is important.

Conclusion

Toronto has almost 20 years of experience applying sustainability requirements to new development, including measures that support biodiversity. While there is still much to be done to reduce the impact of new development on the natural environment, the TGS is helping to put Toronto on a solid path to more sustainable building construction, operation, and site design. Other cities around the world can benefit from Toronto’s experience.

Jane Weninger is a retired City of Toronto Senior Planner

Resources:

BirdSafe. Canadian Standards Association (CSA) Bird-Friendly Building Design Standard. https://birdsafe.ca/csa-bfbd.

City of Toronto. Bird-Friendly Guidelines. https://www.toronto.ca/city-government/planning-development/official-plan-guidelines/design-guidelines/bird- friendly-guidelines.

City of Toronto. Development Charge Refund Program. https://www.toronto.ca/city-government/planning-development/official-plan-guidelines/toronto-green-standard/development-charge-refund-program.

City of Toronto. Green Roof Bylaw. https://www.toronto.ca/city-government/planning-development/official-plan-guidelines/green-roofs/green-roof-bylaw.

City of Toronto. Toronto Green Standard Version 4. https://www.toronto.ca/city-government/planning-development/ official-plan-guidelines/toronto-green-standard/toronto-green-standard-version-4.

City of Toronto. TransformTO Net Zero Strategy. https://www.toronto.ca/servicespayments/water-environment/environmentally-friendly-city-initiatives/transformto.

Convention on Biological Diversity. Global Biodiversity Outlook. https://www.cbd.int/gbo5.

ipbes. Global Assessment Report on Biodiversity and Ecosystem Services. https://www.ipbes.net/global-assessment.

National Glass Association. Best Practices for Bird-Friendly Glazing Design (DG01-21). https://members.glass.org/cvweb/cgi-bin/msascartdll.dll/ProductInfo?productcd=BIRDGLAZING