Missing Middle Summit – Housing Development

By James Fields, Toronto Broker and Missing Middle Development Specialist

Toronto stands at a pivotal crossroads. Confronted with a deepening housing crisis and widening gaps in affordability, the City has responded with bold zoning reforms aimed squarely at what planners and developers have long referred to as the “missing middle”—a range of housing types that fall between detached single-family homes and high-rise condominiums. As a broker specializing in this segment, I believe this shift isn’t just necessary—it’s transformative.

What Is the “Missing Middle”?

The missing middle refers to medium-density, human-scale housing like duplexes, triplexes, fourplexes, garden suites, laneway houses, and low-rise walk-up apartments. These forms of housing once existed in abundance across Toronto but were effectively zoned out in the mid-20th century. For decades, planning policies prioritized detached housing or high-density towers, leaving a void in options for middle-income families, young professionals, seniors looking to downsize, and others priced out of both ends of the market.

Zoning Reform: A Watershed Moment

As of June 14, 2023, Toronto legalized multiplex housing citywide. Duplexes, triplexes, and fourplexes are now permitted in all residential zones, with further support from design guidelines, relaxed parking requirements, and streamlined permitting. This landmark decision is part of the City’s Expanding Housing Options in Neighbourhoods initiative and reflects a broader commitment to dismantling exclusionary zoning policies that have shaped our urban fabric for far too long.

On January 1, 2024, further reforms solidified this momentum with the most comprehensive upzoning in any major Canadian city. Toronto’s new zoning regime makes room for thousands of new homes on lots previously restricted to one. It’s a fundamental reimagining of the “neighbourhood,” and one that better reflects how people live today.

Architectural Diversity & Neighbourhood Character

Critics of density often worry about the erosion of community character, but the opposite is true. The missing middle enables architectural variety and promotes intergenerational living while preserving the walkability, charm, and human scale of Toronto’s low-rise neighborhoods.

In fact, outdated zoning laws constrained creativity. Architects and planners were boxed into narrow typologies. The new framework opens the door to smarter, more context-sensitive designs that complement their surroundings. Think of triplexes with front porches, laneway houses behind existing homes, or elegant fourplexes that mimic detached homes in massing. These forms don’t destroy neighborhood character—they enhance it.

Addressing Vulnerability and Inclusion

Toronto’s new rules also serve an important social justice function. Historical zoning has often been a tool of exclusion, explicitly or implicitly preventing lower-income residents, newcomers, and people of colour from accessing desirable neighbourhoods. The shift toward inclusive zoning is about more than housing—it’s about equity.

Through inclusionary zoning and new building typologies, Toronto ensures vulnerable populations can access safe, affordable, and dignified housing options. This framework is an essential first step, while challenges remain, particularly around funding, implementation, and affordability targets.

Community Engagement and Infrastructure

Zoning changes without community buy-in don’t stick. That’s why the City has prioritized robust community engagement through virtual design workshops, planning charrettes, and neighbourhood consultations. These sessions help ensure developments align with local values while addressing legitimate infrastructure, amenities, and services concerns.

And those concerns are real. Increased density does place pressure on schools, parks, transit, and utilities. But it also justifies greater investment. Infrastructure follows people. When density is distributed thoughtfully, especially through missing middle housing, we avoid sprawl, reduce environmental impacts, and support the vibrancy of existing neighbourhoods.

Financial Incentives and Affordability

The success of zoning reform hinges on legal permissions and economic feasibility. To that end, the City of Toronto and its partners have introduced a range of policy tools, including:

• Inclusionary Zoning: Requiring affordable units in larger developments.
• Deferral of Development Charges: To reduce upfront costs for small-scale developers.
• Federal and Provincial Grants: Targeted at non-market housing providers.
• Priority Permitting for Affordable Projects: Cutting red tape for qualifying proposals.

In 2023, the City updated its HousingTO 2020–2030 Action Plan to target 65,000 new rent-controlled homes and 41,000 designated affordable rental units. These efforts send a clear message: affordability isn’t optional. It’s the foundation of a resilient city.

Who Really Benefits? Middle-Income Families

While much attention goes to subsidized housing (as it should), middle-income families have been quietly squeezed out of the City. They earn too much to qualify for affordable housing but too little to compete in the open market. For them, missing middle housing could be the answer.

Townhouses, multiplexes, and low-rise apartments provide a path to homeownership or stable long-term renting within established neighbourhoods. They allow families to live near schools, transit, and jobs, without relying on long commutes or compromising on quality of life.

Resident Concerns and the Path Forward

Naturally, not all residents welcome these changes. Concerns about traffic, shadowing, privacy, and property values are shared. But fears often stem from misinformation. Missing middle housing is not about building towers on every corner. It’s about allowing three or four homes where there used to be one, quietly, incrementally, and in keeping with the street’s character.

Others worry that upzoning alone won’t create truly affordable homes. They’re right. Zoning is a necessary but insufficient tool. It must be paired with public funding, progressive taxation, and innovative development models like land trusts or co-ownership frameworks. However, without zoning reform, none of those solutions has room to operate.

The Vision: Distributed Density, Connected Communities

Missing middle housing allows us to densify without disrupting. It promotes distributed density—a more sustainable urban form than high-rises concentrated downtown or sprawl pushing into farmland. It supports local businesses, schools, and public services. It reduces per-capita infrastructure costs. It builds complete communities.

At its core, this isn’t just about housing units. It’s about people. It’s about the nurse who wants to live near the hospital. The retired couple who wants to age in place. The young family who wants to raise their kids near where they grew up. It’s about fairness, flexibility, and the future of our City.

Toronto’s embrace of missing middle zoning is more than a policy change—it’s a cultural shift. It recognizes that the shape of our neighbourhoods must evolve to meet the demands of our time. As a broker and development specialist, I see firsthand the potential these reforms unlock—not just for builders but everyday Torontonians.

We have the tools. We have the momentum. Now we need the courage to build smartly, equitably, and together.