The Federal Reserve is delaying a vote on Toronto- Dominion Bank's plan to buy a card and consumer loan bank in the New York suburbs until the two submit a detailed three-year community reinvestment plan. The Fed wants to know "the specific approach" Toronto-Dominion intends to pursue after buying Waterhouse National Bank of White Plains, N.Y., "with time frames for anticipated actions, proposals for monitoring, progress reports, and the like," wrote Glenn E. Loney, associate director for consumer and community affairs. His letter was sent to the bank Tuesday Industry lawyers and activists said the Fed's action was highly unusual. Fed officials often ask banks for more details on Community Reinvestment Act initiatives but rarely demand long-range investment plans. "This is telling you that the Fed thinks Toronto-Dominion's record is satisfactory but they are concerned about items raised by protesters," said Francis X. Grady, a partner at Grady & Associates in Cleveland.