from abandonment to affordable housing: policy options for …€¦ · from abandonment to...

From Abandonment to Affordable Housing: Policy Options for

Addressing Toronto’s Abandonment Problem

David Wachsmuth

Research Paper 215

Cities Centre, University of Toronto

November 2008

(formerly the Centre for Urban and Community Studies)

ISSN 0316-0068; ISBN 978-0-7727-1472-5

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Executive Summary

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Author

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Acknowledgements!

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F r o m A b a n d o n m e n t t o A f f o r d a b l e H o u s i n g v


Table of Contents

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CJC! :/W!KT58A:&ERW!8"!&!T&=W<KE<:8A8E:8!&55A8&R/ JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ B!CJB! AW58A:!8fWAfKW?JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ M!

4#!0*+,%1-(*+2*3!()(*+&*',*- ###################################################################################################5!

BJC! &O&E=8ETWE:!KL!&!5A8RWLL JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ D!BJB! &O&E=8ETWE:!KL!TS\:K=KTWELK8E&\JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ N!BJM! &O&E=8ETWE:4!&!TS\:K=KTWELK8E&\!5A8RWLL JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ G!

6#!-&%&*-&71!()(*+&*',*-!2110,1 ############################################################################################### 8!

MJC! ?/&:!gKE=!8"!&O&E=8ETWE:!KLLSWL!=8WL!:8A8E:8!/&fWhJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ CF!Functional abandonment: speculation-driven vacancy..................................................................... 11!The opportunity cost of abandonment .............................................................................................. 13!Inheritance disputes and other legal complications.......................................................................... 14!Physical abandonment: deterioration of multi-rental high rises ........................................................ 14!The challenge of code enforcement ................................................................................................. 17!Financial abandonment..................................................................................................................... 17!Public abandonment ......................................................................................................................... 18!

MJB! ?/b!&AW!:/WAW!L8!"W?!&O&E=8EW=!5A85WA:KWL!KE!:8A8E:8h JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ CP!

5#!! 9&.2:;!&9-2&*1!$&%!-&%&*-&71!()(*+&*',*-!2110,1 ################################################ 4<!

IJC! T8EK:8AKEU!&O&E=8ETWE:!KLLSWL JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ BC!Problematic-property tracking system .............................................................................................. 22!Sponsoring abandonment research.................................................................................................. 22!

IJB! gWW5KEU!AWE:&\!/8SLKEU!"A8T!OWR8TKEU!&O&E=8EW=JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ BM!Landlord licensing ............................................................................................................................. 23!Demolition and conversion control.................................................................................................... 27!Leveraging the heritage designation................................................................................................. 28!

IJM! AWR\&KTKEU!&O&E=8EW=!5A85WA:KWL JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ BG!Vacant property fees......................................................................................................................... 29!Expropriating properties to guarantee affordable housing................................................................ 30!

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&O&E=8ETWE:!KE!:/W!SEK:W=!L:&:WLJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ MQ!&O&E=8ETWE:!KE!:/W!SEK:W=!gKEU=8T JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ MG!&O&E=8ETWE:!KE!R&E&=& JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ MG!

(99,*+2=!22#!?/(-!:(01,1!()(*+&*',*-@ ################################################################################ 68!

&O&E=8ETWE:!&L!WR8E8TKR!=WR\KEW4!:/W!]EWKU/O8SA/88=!\K"WRbR\W^!:/W8Ab JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ MP!Neighbourhood change: “an inevitable trend toward decline” .......................................................... 40!The legacy of the neighbourhood lifecycle theory ............................................................................ 42!

&O&E=8ETWE:!&L!&E!8S:R8TW!8"!58\K:KR&\!&E=!KEL:K:S:K8E&\!&AA&EUWTWE:L JJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJJ IB!Speculative abandonment ................................................................................................................ 42!Abandonment and gentrification ....................................................................................................... 43!Government-created abandonment.................................................................................................. 43!

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List of figures

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1.1 The importance of a made-in-Toronto approach

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F r o m A b a n d o n m e n t t o A f f o r d a b l e H o u s i n g 3


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1.2 Report overview

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2. Understanding Abandonment

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2.1 Abandonment is a process

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2.2 Abandonment is multidimensional

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2.3 Abandonment: a multidimensional process

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3. Toronto’s Abandonment Issues

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1 0 F r o m A b a n d o n m e n t t o A f f o r d a b l e H o u s i n g

C i t i e s C e n t r e • U n i v e r s i t y o f T o r o n t o

The high-rise apartment buildings mentioned in this report were largely identified by

members of the Association of Community Organizations for Reform Now Canada

(ACORN Canada) in the course of canvassing work they do in low-income neighbour-

hoods. The buildings discussed are by no means intended to be a representative sample

of large multi-unit rental buildings, either in terms of spatial distribution or physical and

social characteristics, but are highlighted because they were identified as particularly de-

teriorated and as having particularly high vacancy rates. The properties in tax arrears

were identified from the City of Toronto’s periodic announcements of tax sales. Although

40 properties have been listed since 2005, only 23 residential properties are discussed

below.

3.1 What kind of abandonment issues does Toronto have?

Recalling Hillier et al.’s (2003) distinction of functional, physical, and financial abandon-

ment, it is possible to examine each of these aspects of the problem as they occur in To-

ronto, recognizing that they may well overlap and be implicated in each other’s inci-

dence. Figure 5 shows the location by ward of all the properties discussed in this

chapter. Despite the downtown bias to the data, it is clear that abandonment is a city-

wide problem. Some neighbourhoods have more concentrated abandonment than oth-

ers, but it is likely that complete data would show that nearly every neighbourhood is af-

fected.

Figure 5: Toronto’s abandonment issues by ward

F r o m A b a n d o n m e n t t o A f f o r d a b l e H o u s i n g 1 1


Functional abandonment: speculation-driven vacancy

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Inheritance disputes and other legal complications

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The challenge of code enforcement

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,#(,+1!,@+!+V,+),!,$!Y@26@!+V,#+%+!*21#+9(2#!'+6$%+1!2)*21,2)3021@('.+!-#$%!('()*$)<

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ZY@$!(.1$!$Y)1!(!)0%'+#!$-!,@+!$,@+#!'02.*2)31!2)!"230#+!P[!#+6+2>+*!CB!6$)>26,2$)1!()*!

Y(1!-2)+*!oCBHFFF!ZT+.+1H!BFFN[J!E+2,@+#!,@+1+!%2)0160.+!-2)+1!)$#!(!101,(2)+*H!%$),@<

.$)3!9$.26+!6#(6`*$Y)!Y(1!('.+!,$!1,('2.2k+!,@+!12,0(,2$)H!()*!'7!+(#.7!BFFN!,@+!R$0)62.<

.$#!Y(1!9#+9(#2)3!-$#!,@+!6.$10#+!$-!,@+!'02.*2)3!0)*+#!,@+!90'.26!)021()6+!9#$>212$)!$-!

,@+!City of Toronto Act!Z1J!MGG[!2-!2%9#$>+%+),1!Y+#+!)$,!%(*+!ZR2,7!$-!:$#$),$H!BFFN'[J!

:@+#+!@(>+!'++)!)$!%(c$#!2)62*+),1!(,!,@+!'02.*2)3!2)!,@+!10'1+a0+),!7+(#1H!()*!(1!$-!

10%%+#!BFFGH!,@+!,@#+(,!$-!6.$10#+!@(*!)$,!'++)!(6,+*!09$)J!

:@+!,Y$!'02.*2)31!(,!CQND!()*!CQQD!?+1,$)!A$(*!Z$Y)+*!'7!,@+!1(%+!9+#1$)!Y@$!

$Y)1!CFCC!\()1*$Y)+!&>+)0+[H!$)+!$-!Y@26@!@(1!,@+!@23@+1,!>(6()67!#(,+!$-!()7!'02.*<

2)3!+V(%2)+*!@+#+H!@(>+!(.1$!9$1+*!6$),2)0(.!9#$'.+%1!-$#!%0)2629(.!1,(--H!,$!,@+!+V,+),!

,@(,!,@+!R2,7!(0,@$#2k+*!(!3#(),!$-!oDHFFF!,$!,@+!,+)(),1!$-!,@+!'02.*2)31!,$!@+.9!6$>+#!

,@+2#!.+3(.!-++1!2)!3#2+>()6+!9#$6++*2)31!(3(2)1,!,@+!.()*.$#*!ZR2,7!$-!:$#$),$H!BFFD([J!K)!

'$,@!,@+1+!6(1+1!Z(1!Y+..!(1!%()7!$,@+#1[H!101,(2)+*!1,(--!(,,+),2$)!@(1!9#$*06+*!2%<

9#$>+%+),1!2)!,@+!6$)*2,2$)!$-!,@+!'02.*2)31H!'0,!$).7!(,!(!@23@!6$1,!2)!,2%+!()*!#+<

1$0#6+1J!:@+!R2,7!#+a02#+1!%$#+!6(9(62,7!-$#!%$)2,$#2)3!()*!-$#!+)-$#6+%+),J!&!.()*.$#*!

.26+)12)3!171,+%!Y$0.*!'+!$)+!%+()1!$-!(6a02#2)3!'$,@J!

Financial abandonment

K)!,@+!&%+#26()!62,2+1!Y$#1,!(--+6,+*!'7!('()*$)%+),H!2,!21!6$%%$)!-$#!$Y)+#1!,$!6+(1+!

9(72)3!9#$9+#,7!,(V+1!$)!,@+2#!9#$9+#,2+1H!()*!,@+1+!62,2+1!$-,+)!(6a02#+!.(#3+!2)>+),$#2+1!

$-!>(6(),!'02.*2)31!()*!.$,1!,@#$03@!,(V!-$#+6.$10#+J!K)!6$),#(1,H!:$#$),$!@(1!(.%$1,!)$!

-2)()62(.!('()*$)%+),J!:(V+1!(#+!9(2*!$)!,@+!>(1,!%(c$#2,7!$-!9#$9+#,2+1_2)6.0*2)3!>(<

6(),!9#$9+#,2+1_2)!,@+!62,7J!K)!,@+!#(#+!6(1+1!2)!Y@26@!(!9#$9+#,7<,(V!'2..!#+%(2)1!$0,<

1,()*2)3!-$#!,@#++!7+(#1H!,@+!R2,7!6()!2)2,2(,+!(!90'.26!(06,2$)!$-!,@+!9#$9+#,7!0)*+#!1J!

MIB!$-!,@+!City of Toronto Act!,$!#+6$>+#!,@+!,(V+1J!

S).2`+!&%+#26()!1,(,+1!106@!(1!R$))+6,260,!()*!U+$#32(H!Y@+#+!,(V!-$#+6.$10#+!21!01+*!

,$!+1,('.21@!90'.26!$Y)+#1@29!$-!#+12*+),2(.!9#$9+#,2+1!,$!302*+!-0,0#+!*+>+.$9%+),!ZT(.<

.(6@H!BFFN4!QQ<QP[H!:$#$),$!21!$'.23(,+*!0)*+#!9#$>2)62(.!.(Y!,$!1+..!9#$9+#,2+1!2)!(##+(#1!



(,!(!90'.26!(06,2$)H!()*!#+6$091!$).7!,@+!,(V+1!$Y+*!,$!2,J!:@21!21!(!Y(1,+*!$99$#,0)2,7!

-$#!,@+!R2,7H!'0,!2,!21!%(2).7!(!@79$,@+,26(.!$)+H!12)6+H!$-!,@+!-+Y!9#$9+#,2+1!,@(,!3$!2),$!

(##+(#1!2)!:$#$),$H!+>+)!-+Y+#!(#+!+>+#!(6,0(..7!(06,2$)+*!$--J!O+,Y++)!BFFD!()*!BFFQ!

IF!,(V!1(.+1!Y+#+!())$0)6+*H!'0,!2)!%$1,!6(1+1!,@+!+V21,2)3!$Y)+#!6(%+!-$#Y(#*!()*!

9(2*!,@+!$0,1,()*2)3!,(V+1!'+-$#+!,@+!(06,2$)!$660##+*J!8-!,@+!CM!9#$9+#,2+1!*+123)(,+*!

-$#!,(V!1(.+1!2)!BFFQH!-$#!+V(%9.+!ZCC!$-!Y@26@!Y+#+!#+12*+),2(.!9#$9+#,2+1!$#!6$)*$!

0)2,1[H!CB!Y+#+!)$,!(06,2$)+*H!()*!,@+!$)+!,@(,!*2*!Y(1!6$),(%2)(,+*!6$%%+#62(.!.()*J!

:(V!1(.+!2)-$#%(,2$)!21!()!(%'230$01!2)*26(,$#!$-!-2)()62(.!('()*$)%+),H!'+6(01+!,@+!

R2,7!2)2,2(,+1!9#$6++*2)31!(3(2)1,!$).7!CF!,$!CD!9#$9+#,2+1!(!7+(#H!#+3(#*.+11!$-!,@+!)0%<

'+#!$-!a0(.2-72)3!9#$9+#,2+1J!E+>+#,@+.+11H!2,!21!9$112'.+!,$!*#(Y!1$%+!6$)6.012$)1!-#$%!

()!()(.7121!$-!,@+!BM!#+12*+),2(.!'02.*2)31!()*!>(6(),!9(#6+.1!.21,+*!12)6+!BFFDJ!&!

19$`+19+#1$)!-#$%!A+>+)0+!L+#>26+1!Z,@+!%0)2629(.!0)2,!#+19$)12'.+!-$#!,(V!1(.+1[!

1,(,+*!,@(,!,@+!R2,7!9#2$#2,2k+1!'02.*2)31!2)!2,1!(06,2$)1H!1033+1,2)3!,@(,!,@+!*(,(!1+,!-$#!

*+>+.$9+*!.()*!(,!.+(1,!21!10'1,(),2(..7!6$%9.+,+J!

&1!"230#+!CC!2..01,#(,+1H!,@+!.$6(,2$)!$-!,(V<1(.+!9#$9+#,2+1!'#$(*.7!$>+#.(91!,@+!(#+(1!2)!

Y@26@!('()*$)%+),1!(#+!6$)6+),#(,+*J!:@+#+!21!(!9(#,260.(#!6$)6+),#(,2$)!2)!,@+!+(1,!

+)*!$-!,@+!*$Y),$Y)H!()*!()$,@+#!(#$0)*!d()+!L,#++,!,$!,@+!Y+1,J!:@+!>(6(),!.$,1!(#+H!

Y2,@!$)+!+V6+9,2$)H!.$6(,+*!$0,12*+!,@+!6$##2*$#!$-!@23@+#<9#$9+#,7!>(.0+1!'+,Y++)!,@+!

=$)!f(..+7!()*!g++.+!L,#++,n!,@+!-(6,!,@(,!,@+1+!9#$9+#,2+1!@(>+!#+%(2)+*!0)*+>+.$9+*!

.2`+.7!#+-.+6,1!,@+2#!.$Y+#!.()*!>(.0+1J!:@+!'02.*2)31!(#+!%$#+!*219+#1+*H!'0,!(.1$!6$)6+)<

,#(,+*!2)!,@+!Y+1,!()*!,@+!+(1,J!:@+7!(#+!%$1,.7!$Y)+#<$66092+*!12)3.+<-(%2.7!@$%+1!

Z12)3.+<!$#!1+%2<*+,(6@+*[J!8).7!,Y$!'02.*2)31!Y+#+!>(6(),!(,!,@+!,2%+!$-!,@+!(06,2$)n!

A+>+)0+!L+#>26+1!6$)-2#%+*!,@(,!,@+!%(c$#2,7!$-!'02.*2)31!2)!,(V!(##+(#1!(#+!$66092+*J!

:$!,@+!+V,+),!,@(,!:$#$),$!+V9+#2+)6+1!-2)()62(.!('()*$)%+),H!,@+)H!2,!21!a02,+!(!*2--+#+),!

12,0(,2$)!-#$%!&%+#26()!-2)()62(.!('()*$)%+),1H!Y@+#+'7!,@+!'02.*2)31!,@(,!3$!2),$!(#<

#+(#1!,+)*!,$!'+!>(6(),J!"2)()62(.!('()*$)%+),!%(7!)$,!'+!()!2)*2>2*0(.<9#$9+#,7<.+>+.!

9$.267!9#$'.+%!-$#!,@+!R2,7H!'0,!2,1!19(,2(.!6$##+.(,2$)!Y2,@!(#+(1!+V9+#2+)62)3!9@7126(.!

()*!-0)6,2$)(.!('()*$)%+),!1033+1,1!,@(,!,#(6`2)3!-2)()62(.!('()*$)%+),!Y$0.*!'+!(!

01+-0.!)+23@'$0#@$$*<.+>+.!2)*26(,$#!,$!'+,,+#!0)*+#1,()*!,@+!6(01+1!()*!2%9.26(,2$)1!$-!

('()*$)%+),!2)!:$#$),$J!

Public abandonment

&.,@$03@!,@21!#+9$#,!(**#+11+1!('()*$)+*!9#$9+#,2+1!2)!,@+!9#2>(,+!1+6,$#!$).7H!@$012)3!

('()*$)%+),!21!)$,!12%9.7!(!9#2>(,+<1+6,$#!9#$'.+%J!:$#$),$!@(1!Y+..<90'.262k+*!9#$'<

.+%1!Y2,@!'$,@!-0)6,2$)(.!()*!9@7126(.!('()*$)%+),!2)!2,1!90'.26<@$012)3!1,$6`H!(*%2)21<

,+#+*!'7!,@+!:$#$),$!R$%%0)2,7!/$012)3!R$#9$#(,2$)!Z:R/R[J!?@2.+!%(2),+)()6+!2)!

,@+!%$1,!#0)<*$Y)!9#2>(,+!#+),(.!2)!,@+!62,7!21!9#$'('.7!Y$#1+!,@()!()7,@2)3!-$0)*!2)!

:R/R!'02.*2)31H!6$)*2,2$)1!2)!,@+!.(,,+#!@(>+!'++)!10--262+),.7!9$$#!,$!9#$%9,!$)+!#+12<

*+),!,$!-2.+!(!6.(11<(6,2$)!.(Y102,!(3(2)1,!,@+!R2,7!ZT$)1+'#((,+)H!BFFQ[J!T$#+$>+#H!

:R/R!$Y)1!DF!12)3.+<0)2,!*Y+..2)31!,@(,!(#+!>(6(),!'+6(01+!$-!,@+2#!9$$#!1,(,+!$-!#+9(2#!

ZO#(*1@(YH!BFFQ[J!:@+!6(01+!$-!,@21!('()*$)%+),!21!+(17!,$!92)9$2),4!6$)121,+),!0)*+#<

2)>+1,%+),!'7!(..!.+>+.1!$-!3$>+#)%+),_'0,!9(#,260.(#.7!1+)2$#!$)+1H!Y@26@!@(>+!3#+(,+#!

-216(.!6(9(62,7_2)!1$62(.!@$012)3J!



$BCDEF!""G!(HHLDHUFK!EFTBKFHQBIM!QIVOTIMF!PELPFEQBFT!BH!-LELHQL]!4<<A!4<<>!

3.2 Why are there so few abandoned properties in Toronto?

U2>+)!,@+!.(6`!$-!6$%9#+@+)12>+!:$#$),$<19+62-26!#+1+(#6@H!2,!21!2%9$112'.+!,$!1,(,+!Y2,@!

()7!6+#,(2),7!Y@7!,@+#+!21!1$!.2,,.+!('()*$)%+),!2)!,@+!62,7H!'0,!(!-+Y!-(6,$#1!(#+!1033+1<

,2>+J!:@+!,Y$!6$)*2,2$)1!%$1,!1,#$)3.7!(11$62(,+*!Y2,@!('()*$)%+),!2)!&%+#26()!62,2+1!

(#+!1(332)3!9#$9+#,7!%(#`+,1!()*!*$Y),$Y)!*+6.2)+J!K)!*+6.2)2)3!$#!.$Y<3#$Y,@!62,2+1H!

,@+#+!21!2)10--262+),!#+12*+),2(.!*+%()*!,$!$66097!,@+!+V21,2)3!@$012)3!1,$6`H!(!-(6,!+V(6<

+#'(,+*!2)!6+),#(.!62,2+1!'7!,@+!-.23@,!$-!#+12*+),1!(Y(7!-#$%!,@+!*$Y),$Y)J!E+2,@+#!$-!

,@+1+!,#+)*1!21!9#+1+),!2)!:$#$),$n!+19+62(..7!2)!#+6+),!7+(#1H!9#$9+#,7!>(.0+1!@(>+!

'$$%+*H!()*!#+12*+),2(.!*+%()*!*$Y),$Y)!21!@23@J!T$#+$>+#H!0),2.!,@+!.(1,!-+Y!7+(#1H!

>(6()67!#(,+1!Y+#+!+V,#+%+.7!.$YH!Y@26@!%(7!@(>+!(6,+*!(1!()!2)6+),2>+!-$#!.()*.$#*1!

,$!`++9!,@+2#!#+),(.!0)2,1!$)!,@+!%(#`+,J!

:@+!-(6,$#1!,@(,!%(`+!:$#$),$;1!('()*$)%+),!9#$'.+%!.+11!1+>+#+!,@()!,@$1+!$-!$,@+#!

62,2+1!(.1$!32>+!2,!3#+(,+#!9$,+),2(.!,$!(**#+11!,@+!9#$'.+%1!2,!*$+1!@(>+J!&!1,#$)3!#+),(.!

%(#`+,!%+()1!.()*.$#*1!(#+!3+)+#(..7!2)!(!-2)()62(.!9$12,2$)!,$!#+19$)*!,$!'$,@!)+3(,2>+!

()*!9$12,2>+!+6$)$%26!2)*06+%+),1n!(!.()*.$#*!.26+)12)3!-++H!-$#!+V(%9.+H!,@(,!%23@,!

-$#6+!%(#32)(.!.()*.$#*1!$--!,@+!%(#`+,!2)!O(.,2%$#+!6$0.*!.2`+.7!'+!('1$#'+*!Y2,@$0,!*2-<

-260.,7!'7!@23@<#21+!.()*.$#*1!2)!:$#$),$J!:$#$),$!21!Y+..<9$12,2$)+*!,$!,(`+!(6,2$)!$)!

('()*$)%+),!(1!%+()1!$-!(**#+112)3!,@+!(--$#*('.+!@$012)3!6#2121J!:@+!)+V,!6@(9,+#!

1033+1,1!1$%+!%+()1!-$#!*$2)3!1$J!


4. Policy Options for Toronto’s Abandonment Issues

&%$)3!,@+!9$.267!#(,2$)(.+1!-$#!(**#+112)3!@$012)3!('()*$)%+),!2)!:$#$),$H!9+#@(91!

,@+!%$1,!9+#10(12>+!21!,@+!(--$#*('.+!@$012)3!6#2121!-(62)3!,@+!62,7J!:@21!6#2121!21!9#2%(#2.7!

(!6#2121!$-!9#2>(,+<#+),(.!@$012)3_,@+!.(#3+!%(c$#2,7!$-!,@+!(--$#*('.+!@$012)3!1,$6`!2)!

:$#$),$J!A+6+),!7+(#1!@(>+!1++)!,@+!*+,+#2$#(,2$)!$-!,@+!9$12,2$)!$-!.$Y<2)6$%+!@$01+<

@$.*1!2)!,@+!#+),(.!1+6,$#!2)!:$#$),$!()*!(6#$11!,@+!6$0),#7_)$!10#9#21+H!32>+)!,@(,!

R()(*(!@(1!,@+!%$1,!-#++<%(#`+,!(99#$(6@!,$!@$012)3!2)!,@+!?+1,H!()*!,@+!1+6$)*!.$Y<

+1,!#(,+!$-!1$62(.!@$012)3H!(-,+#!,@+!S)2,+*!L,(,+1!Z/0.6@()1`2!()*!L@(96$,,H!BFFI[J!!

!

$BCDEF!"4G!(!JLIEKFKODP!JDBMKBHC!LH!3FLECF!1QEFFQ]!EFUFHQMW!MBTQFK!XLE!SFEBQICF!TQIQDT!JW!QSF!:BQW!!

5@$,$4!L6$,,!?+2#!!



&)!(**2,2$)(.!Y$##72)3!,#+)*!2)!:$#$),$!$>+#!,@+!.(1,!-+Y!*+6(*+1!@(1!'++)!,@+!*21(9<

9+(#()6+!$-!%2V+*<2)6$%+!)+23@'$0#@$$*1!2)!,@+!-(6+!$-!,@+!2)6#+(12)3!19(,2(.!1+3#+3(<

,2$)!$-!,@+!Y$#`2)3!9$$#!Z$>+#Y@+.%2)3.7!2%%23#(),1[!2)!,@+!62,7;1!2))+#!10'0#'1!()*!,@+!

Y+(.,@7!2)!,@+!*$Y),$Y)4!Y@(,!=(>2*!/0.6@()1`2!ZBFFQ[!@(1!6(..+*!,@+!],@#++!62,2+1!

Y2,@2)!:$#$),$J^!

&1!"230#+!CM!1@$Y1H!(#$0)*!,@+!,0#)!$-!,@+!6+),0#7!,@+!>(6()67!#(,+!2)!:$#$),$!6.2%'+*!

,$!(!@+(.,@7!.+>+.!-$#!,@+!-2#1,!,2%+!2)!*+6(*+1H!'0,!,@21!21!.2`+.7!,$!@(>+!'++)!$).7!(!,+%<

9$#(#7!#+9#2+>+H!*#2>+)!'7!.$Y!2),+#+1,1!#(,+1!()*!()!2)6#+(1+!2)!@$%+$Y)+#1@29!#(,+1J!

:@+!>(6()67!#(,+!21!(.#+(*7!*+6.2)2)3!(3(2)J!K-!2,!6$),2)0+1!,$!*#$9H!@$01+@$.*1!2)!,@+!

#+),(.!1+6,$#!Y2..!-++.!,@+!1a0++k+J!!

$BCDEF!"6G!%FHQIM!YIUIHUW!EIQFT!BH!-LELHQL!IHK!:IHIKI]!"884O4<<>!!

L$0#6+4!RT/RH!BFFG!

:@+#+!@(1!'++)!(.%$1,!)$!)+Y!#+),(.!@$012)3!6$)1,#06,2$)!2)!:$#$),$!2)!$>+#!(!*+6(*+H!()*!,@+!R2,7;1!9#2%(#7!#+),(.!1,$6`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c+6,2>+1H!(.$)3!Y2,@!'+,,+#!0)*+#1,()*2)3!()*!,#(6`2)3!$-!,@+!9#$'.+%H!1@$0.*!-$#%!,@+!'(121!$-!:$#$),$;1!('()*$)%+),!1,#(,+37J!!

4.1 Monitoring abandonment issues

:@+!-2#1,!1,+9!2)!(**#+112)3!()!('()*$)%+),!9#$'.+%!21!0)*+#1,()*2)3!2,J!:@+!9#+>2$01!

6@(9,+#!@(1!*+%$)1,#(,+*!,@+!+)$#%$01!0)6+#,(2),7!,@(,!10##$0)*1!@$012)3!('()*$)<

%+),!2)!:$#$),$J!8).7!,@+!%0)2629(.!3$>+#)%+),!@(1!(66+11!,$!,@+!)+6+11(#7!2)-$#%(<

,2$)!,$!9#$9+#.7!,#(6`!,@+!2110+J!WV9+#2+)6+!-#$%!c0#21*26,2$)1!2)!,@+!S)2,+*!L,(,+1!()*!

W)3.()*!1033+1,1!,@(,!()!+--+6,2>+!9#$9+#,7!,#(6`2)3!171,+%!21!(!9#+#+a0212,+!-$#!()7!-0#<



,@+#!(6,2$)!,@+!R2,7!%23@,!,(`+H!()*!6()!'+!(11+%'.+*!Y2,@$0,!()!2)$#*2)(,+.7!@+(>7!2)<

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Problematic-property tracking system

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Sponsoring abandonment research

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4.2 Keeping rental housing from becoming abandoned

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Landlord licensing

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,(`+)!-#$%!,@+!+16#$Y!(66$0),J!:@+!+16#$Y!171,+%!'+2)3!6$)12*+#+*!'7!,@+!R2,7!$-!:$<

#$),$!Z(66$#*2)3!,$!(!'#2+-!*+16#29,2$)!2)!R2,7!$-!:$#$),$H!BFFQ*[!Y$0.*!)$,!(..$Y!#+),1!,$!

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,+)(),!9#$,+6,2$)^_,@+!9$112'2.2,7!,@(,H!Y2,@!.(#3+!9+#<0)2,!.26+)12)3!-++1!2)!,@+!Y$#1,!

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'7!(!)0%'+#!$-!c0#21*26,2$)1!2)!E$#,@!&%+#26(H!2)6.0*2)3!f()6$0>+#!()*!\$1!&)3+.+1!

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ZT(..(6@H!BFFN4!IB<IM[J!:$#$),$!@(1!2)*26(,+*!(!9#+-+#+)6+!-$#!(!9+#<'02.*2)3!16@+%+H!

9(#,260.(#.7!2)!6$%9(#21$)!Y2,@!$9+#(,$#!.26+)12)3H!Y@26@!2,!Y(1!6$)12*+#2)3!9#2$#!,$!,@+!

9(11(3+!$-!,@+!City of Toronto ActH!Y@+)!,@+!R2,7!Y(1!)$,!9+#%2,,+*!,$!.26+)1+!'02.*2)31!

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%$1,!+V9+)12>+!#+321,#(,2$)!-++!6.(11!Z(!-0)6,2$)!$-!,@+!%(2),+)()6+!$-!,@+!'02.*2)3H!(6<

6$#*2)3!,$!,@+!%$1,!#+6+),!R2,7!9#$9$1(.[!$-!()7!$)+!$-!()!$Y)+#;1!'02.*2)31!6$0.*!'+!

(99.2+*!,$!(..!,@+!'02.*2)31!$Y)+*!'7!,@+!1(%+!9+#1$)J!:@+1+!12,0(,2$)1!Y$0.*!9#$>2*+!

1,#$)3+#!2)6+),2>+1!-$#!.()*.$#*1!,$!%(2),(2)!,@+2#!+),2#+!2)>+),$#7!2)!3$$*!#+9(2#J!A(<

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2)3!9+)(.,2+1!-$#!6$*+!>2$.(,2$)1!,@(,!60.%2)(,+!2)!1()6,2$)1!'+2)3!(99.2+*!,$!(..!$-!(!.()*<

.$#*;1!'02.*2)31!ZR2,7!$-!A(.+23@H!BFFD[J!:@21!(99#$(6@!6()!'+!()!+--+6,2>+!01+!$-!

#+1$0#6+1!Z12)6+!2,!3+)+#(..7!#+30.(,+1!$).7!9#$'.+%(,26!0)2,1[!()*!#+19$)12>+!,$!+3#+<

32$01!9#$'.+%1J!

K,!1@$0.*!9#$>2*+!-$#!.()*.$#*1!@(>2)3!,@+2#!.26+)6+1!#+>$`+*!(1!(!-2)(.!#+6$0#1+!

S)*+#!60##+),!%0)2629(.!.(Y1!()*!9$.262+1H!,@+!0.,2%(,+!9+)(.,7!-$#!(!.()*.$#*!-.(3#(),.7!

-(2.2)3!,$!%(2),(2)!(!'02.*2)3!21!1+6,2$)!IMM!$-!,@+!Municipal CodeH!Y@26@!(..$Y1!%0)262<

9(.2,2+1!,$!$',(2)2)3!(!6$0#,!$#*+#!1@0,,2)3!*$Y)!(!'02.*2)3!-$#!09!,$!,Y$!7+(#1!(1!(!90'.26!

)021()6+J!:@21!6$0#1+!$-!(6,2$)!Y(1!6$),+%9.(,+*!2)!"+'#0(#7!BFFN!-$#!CFCC!\()1<

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,+)(),1J!!

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6$),#$.!$-!2,1!%()(3+%+),!()*!9$112'.7!$Y)+#1@29!Y2,@$0,!1@0,,2)3!2,!*$Y)J!L06@!(!9#$<

6+*0#+H!Y@26@!*0+!,$!2,1!1+>+#2,7!Y$0.*!.2`+.7!'+!(!*+,+##+),!%$#+!$-,+)!,@()!()!(6,0(.!

6$0#1+!$-!(6,2$)!Y$0.*!1,(#,!Y2,@!,@+!'02.*2)3!'+2)3!*+6.(#+*!]('()*$)+*^!0)*+#!,@+!9#$<

9$1+*!S1+!K,!$#!\$1+!K,!'7.(YJ!

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,$!.()*.$#*1!1++`2)3!,$!%(`+!#+)$>(,2$)1H!2,!1@$0.*!,(`+!Y@(,+>+#!1,+91!9$112'.+!,$!

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R2,7!(*%2)21,+#1H!+>+)!,@$03@!,@+!1$0#6+!21!,@+!-+*+#(.!3$>+#)%+),[!()*!1@$#,<,+#%!,(V!

('(,+%+),1J!!

Demolition and conversion control

&1!)$,+*!('$>+H!#212)3!9#$9+#,7!>(.0+1!2)!:$#$),$!9.(6+!9#+110#+!$)!9#$9+#,7!$Y)+#1!,$!

#+9.(6+!,@+2#!#+),(.!(9(#,%+),!'02.*2)31!Y2,@!6$)*$%2)20%1H!,@#$03@!*+%$.2,2$)!$#!6$)<

>+#12$)J!K)!,@+!2),+#+1,1!$-!9#$,+6,2)3!#+),(.!1,$6`H!,@+!R2,7!@(1!2)1,2,0,+*!6$),#$.1!$)!'$,@!

*+%$.2,2$)!()*!6$)>+#12$)H!9#+>2$01.7!0)*+#!,@+!8--262(.!5.()!()*!%$#+!#+6+),.7!0)*+#!

Municipal Code!R@J!NNQH!A+12*+),2(.!A+),(.!5#$9+#,7!=+%$.2,2$)!()*!R$)>+#12$)!R$)<

,#$.H!(*$9,+*!2)!d0.7!BFFQJ!

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ronto ActH!9#$@2'2,1!()7!*+%$.2,2$)!$#!6$)>+#12$)!,@(,!Y$0.*!(--+6,!12V!$#!%$#+!#+),(.!

0)2,1H!0).+11!()!(99.26(,2$)!21!%(*+!,$!R$0)62.!()*!(99#$>+*J!:@21!(33#+112>+!(99#$(6@!

,$!%(2),(2)2)3!#+),(.<@$012)3!1,$6`!21!)+6+11(#7!'0,!2)10--262+),H!12)6+!2,!(99.2+1!$).7!,$!

'02.*2)31!Y2,@!12V!$#!%$#+!0)2,1!2)!,@+!]9#2%(#7^!#+),(.!1+6,$#!Z90#9$1+<'02.,!(9(#,%+),1!

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,+6,+*!'7!.$)3<,+#%!10'12*2+1J!?@(,!#+%(2)1!(#+!CMBHFFF!0)2,1_BG!9+#!6+),!$-!,@+!,$<

,(._0)9#$,+6,+*!'7!*+%$.2,2$)!()*!6$)>+#12$)!6$),#$.!Z1++!"230#+!CD[J!!

T$1,!$-!,@+1+!CBBHFFF!0)2,1!(#+!6$)12*+#+*!]1+6$)*(#7^!#+),(.!@$012)34!(9(#,%+),!'02.*<

2)31!Y2,@!-+Y+#!,@()!,@#++!0)2,1H!6$)*$%2)20%!#+),(.1H!()*!(*!@$6!12,0(,2$)1J!:@+!#+<

%(2)2)3!CFHFFF!0)2,1!(#+!2)!(9(#,%+),!'02.*2)31!Y2,@!,@#++!,$!-2>+!0)2,1J!:@+1+!#+9#+1+),!

$).7!I!9+#6+),!$-!9#2%(#7!#+),(.!1,$6`H!'0,!-0..7!IF!9+#6+),!$-!(..!9#2>(,+!#+),(.!(9(#,%+),!

'02.*2)31!ZR2,7!$-!:$#$),$H!BFFN6[J!K-!1+6$)*(#7!#+),(.!@$012)3!21!,(`+)!2),$!(66$0),H!2,!21!

.2`+.7!,@(,!(!%(c$#2,7!$-!,@+!#+),(.!'02.*2)31!2)!,@+!62,7!(#+!)$,!9#$,+6,+*!'7!*+%$.2,2$)!()*!

6$)>+#12$)!6$),#$.J!

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L$0#6+4!R2,7!$-!:$#$),$H!BFFN6J!



&!1,(--!#+9$#,!$)!,@+!*+%$.2,2$)!()*!6$)>+#12$)!6$),#$.!'7.(Y!1,(,+1!,@(,!]%0)2629(.!9$.<

267!2),+#+1,^!+V,+)*1!$).7!,$!9#$,+6,2)3!]9+#%()+),!#+),(.!@$012)3^!ZR2,7!$-!:$#$),$H!

BFFQ'4!D[J!L2)6+!$)+<a0(#,+#!$-!#+),(.!@$01+@$.*1!*$!)$,!.2>+!2)!]9+#%()+),!#+),(.!@$01<

2)3^!Z2J+JH!,@+!9#2%(#7!#+),(.!()*!(1121,+*!#+),(.!1+6,$#1[H!,@21!9$.267!21!(#30('.7!%21<

302*+*J!K)!+2,@+#!6(1+H!,@+!R2,7!1@$0.*!(,!.+(1,!+)10#+!,@(,!9+#%()+),!#+),(.!'02.*2)31!

Y2,@!-+Y+#!,@()!12V!0)2,1!(#+!9#$,+6,+*!-#$%!*+%$.2,2$)!()*!6$)>+#12$)!(1!Y+..J!:@+!City

of Toronto Act!*$+1!)$,!9+#%2,!#+30.(,2$)!$-!,@+1+!'02.*2)31H!@$Y+>+#!Z1J!CCC[J!:@+!

R$%%0)2,7!S)2>+#12,7!A+1+(#6@!&..2()6+!ZBFFQ4!N[!1033+1,1!,@(,!,@+!R2,7!6$0.*!9#$>2*+!

2)6+),2>+1!,$!%(2),(2)!,@21!1,$6`H!]106@!(1!%$*2-72)3!,@+!,(V!#0.+1!-$#!1%(..!.()*.$#*1J^!

Leveraging the heritage designation

:@+!R2,7;1!@+#2,(3+!*+123)(,2$)!6$0.*!'+!01+*!%$#+!(33#+112>+.7J!K)!,@+!Y(`+!$-!,@+!

]*+%$.2,2$)!'7!)+3.+6,^!$-!N!/$Y(#*!L,#++,!2)!BFFNH!,@+!R2,7!@(1!,(`+)!1,+91!,$!%(2),(2)!

@+#2,(3+!'02.*2)31!%$#+!+--+6,2>+.7H!9(#,260.(#.7!'7!(%+)*2)3!,@+!Municipal Code!2)!L+9<

,+%'+#!BFFQ!,$!6(##7!1,#26,+#!09`++9!1,()*(#*1!ZR2,7!$-!:$#$),$H!BFFQ-[J!=+123)(,2)3!

'02.*2)31!0)*+#!5(#,!Kf!$-!,@+!Ontario Heritage Act!Y$0.*!9#+>+),!,@+2#!*+%$.2,2$)!()*!(.<

.$Y!-$#!(!%$#+!(33#+112>+!(99#$(6@!,$!+)10#2)3!9#$9+#!%(2),+)()6+J!:@+!R2,7!6$0.*!

,@+)!$--+#!,(V!#+*06,2$)1!6$)*2,2$)(.!09$)!,@+!'02.*2)31;!#+,(2)2)3!,@+2#!#+),(.!0)2,1H!0)*+#!

1J!MMI!$-!,@+!City of Toronto Act!ZY@26@!(..$Y1!,@+!R2,7!,$!$--+#!6$)*2,2$)(.!,(V!#+*06,2$)1!

,$!@+#2,(3+!9#$9+#,2+1[J!=+%$.2,2$)!6$),#$.!,@#$03@!,@+!Heritage Act!6$0.*!1+#>+!(1!,@+!

1,26`H!()*!,(V!('(,+%+),1!,@+!6(##$,J!

W2,@+#!(99#$(6@_,(V!2)6+),2>+1!$#!%$#+!(33#+112>+!01+!$-!@+#2,(3+!.21,2)3!ZY2,@!9$112'.+!

,(V!2)6+),2>+1[_Y$0.*!#+a02#+!1$%+!%0)2629(.!-2)()62(.!#+1$0#6+1H!2-!12%9.7!(1!,(V!#+>+<

)0+!-$#3$)+H!'0,!6$0.*!9(,6@!(!3(92)3!@$.+!,@(,!60##+),.7!+V21,1!2)!,@+!R2,7;1!#+),(.!9#$<

,+6,2$)!1,#(,+37!'7!9#$,+6,2)3!#+),(.!@$012)3!2)!'02.*2)31!Y2,@!-+Y+#!,@()!12V!0)2,1J!

4.3 Reclaiming abandoned properties

A+3(#*.+11!$-!,@+!+--+6,2>+)+11!$-!9$.262+1!,$!*+,+#!@$012)3!('()*$)%+),H!,@+#+!Y2..!2)<

+>2,('.7!'+!6(1+1!Y@+#+!*+,+##+),1!(#+!0)1066+11-0.J!"$#!,@+1+!6(1+1H!,@+!R2,7!1@$0.*!

6$)12*+#!,$$.1!,$!#+6.(2%!1+>+#+.7!('()*$)+*!Z010(..7!>(6(),[!9#$9+#,2+1J!T()7!$-!,@+!

(99#$(6@+1!6$%%$).7!01+*!'7!&%+#26()!%0)2629(.2,2+1!2)!9(#,260.(#!(#+!)$,!(99#$9#2(,+!

,$!:$#$),$H!12)6+!,@+7!(#+!*+123)+*!,$!(**#+11!#(%9(),!('()*$)%+),!Z,@$01()*1!$#!

,+)1!$-!,@$01()*1!$-!>(6(),!'02.*2)31[J!:@+1+!(99#$(6@+1!(#+!010(..7!9#+*26(,+*!$)!,#2<

(3+H!()*!$-,+)!2)>$.>+!Y2*+19#+(*!*+%$.2,2$)!(1!(!%+()1!$-!1+60#2)3!9#$9+#,2+1!Y@+)!

#+,0#)2)3!,@+%!,$!,@+!%(#`+,!21!0)-+(12'.+J!

:$#$),$!6$0.*!%(`+!'+,,+#!01+!$-!+6$)$%26!2)6+),2>+1J!O7!-2)()62(..7!*216$0#(32)3!9#$9<

+#,7!$Y)+#1!-#$%!.+,,2)3!,@+2#!9#$9+#,7!1.29!2),$!*2101+H!,@+!R2,7!6()!6#+(,+!(!Y2)<Y2)!

12,0(,2$)H!Y@+#+'7!0)2,1!(#+!#+,0#)+*!,$!,@+!@$012)3!1,$6`!2-!,@+!2)6+),2>+1!(#+!1066+11<

-0.H!()*!,@+!R2,7!#+6+2>+1!2)6$%+!2,!6()!01+!-$#!(--$#*('.+!@$012)3!2-!,@+!2)6+),2>+1!(#+!

)$,J!K)!62#60%1,()6+1!2)!Y@26@!2,!Y$0.*!%(`+!+6$)$%26!1+)1+H!,@+!R2,7!1@$0.*!6$)12*+#!

+V9#$9#2(,2)3!('()*$)+*!'02.*2)31!()*!6$)>+#,2)3!,@+%!*2#+6,.7!2),$!(--$#*('.+!@$012)3!

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4.4 The Use It or Lose It bylaw and Housing Opportunities Toronto

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Appendix I. The Scale of the Problem

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O#2,21@!.2,+#(,0#+J!

Abandonment in Canada

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Appendix II. What Causes Abandonment?

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Abandonment as economic decline: the “neighbourhood lifecycle” theory

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Neighbourhood change: “an inevitable trend toward decline”

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The legacy of the neighbourhood lifecycle theory

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Abandonment as an outcome of political and institutional arrangements

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Speculative abandonment

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