This article hints at what is happening in many cases which is that land speculation is happening by "developers" who simply want the property rezoned in the hopes they can flip it for a higher price down the road. They have zero intentions of actually going ahead with a Site Plan or Building permit to actually build on the property.
That's why it's important to distinguish between zoning application unit numbers and actual site plan application and building permit application unit numbers for building target goals.
https://www.cbc.ca/news/canada/london/am...ack-large-multi-unit-buildings-1.7517736