METROPOLITAN GOVERNMENT AND PLANNING: A CASE STUDY OP SELECTED METROPOLITAN AREAS I N CANADA by EUGENE L I E H - J I N G L E E B. A., P r o v i n c i a l C h u n g - H s i n g U n i v e r s i t y , 1965 A THESIS SUBMITTED I N PARTIAL FULFILMENT OF THE REQUIREMENTS FOR THE DEGREE OF i MASTER OF ARTS in the School of Community a n d R e g i o n a l We a c c e p t required THE this thesis Planning as conforming t o the standard UNIVERSITY OF B R I T I S H COLUMBIA January, 1969 In p r e s e n t i n g an this thesis i npartial f u l f i l m e n t of the requirements f o r advanced degree a t t h e U n i v e r s i t y o f B r i t i s h the Library I further for shall make i t f r e e l y agree that permission available Columbia, I agree that f o r r e f e r e n c e and Study. for extensive copying of this thesis s c h o l a r l y p u r p o s e s may be g r a n t e d b y t h e Head o f my D e p a r t m e n t o r by his of this written representatives. thesis I t i sunderstood f o rfinancial shall copying or p u b l i c a t i o n n o t be a l l o w e d w i t h o u t my permission. D e p a r t m e n t o f {^synnrnuMZE*^, The U n i v e r s i t y o f B r i t i s h V a n c o u v e r 8, Canada Date gain that Ctsngj Columbia fyx^&lJzQ fs$&H/n,</*\ 7 ii ABSTRACT In the twentieth century, we a r e e x p e r i e n c i n g r a p i d u r - b a n i z a t i o n and m e t r o p o l i t a n i z a t i o n i n N o r t h A m e r i c a . t h i s metropolitan area and p h y s i c a l problems Solutions ture is o f these of local e x p l o s i o n are the severe t h a t have o c c u r e d Following social, human, i n our b i g urban problems a r e i n h i b i t e d b y t h e complex governments i n m e t r o p o l i t a n a r e a s . areas. struc- The p r o b l e m d e s c r i b e d a s t o o many g o v e r n m e n t s a n d n o t enough government. Today, r e g i o n a l p l a n n i n g d e a l s n o t o n l y w i t h the problem of resource politan areas. effective, tical development, but a l s o w i t h the development o f metroHowever, i f m e t r o p o l i t a n p l a n n i n g i s t o be i t must be i n t e g r a t e d i n t o s t r u c t u r e with established: successful, a formal area-wide l e g i t i m a t e power. poli- Thus, the h y p o t h e s i s i s f o r planning a t the m e t r o p o l i t a n level t o be i t must be i n t e g r a t e d i n t o a w e l l o r g a n i z e d area- wide g o v e r n m e n t a u t h o r i t y , and must o b t a i n a w e l l - c o - o r d i n a t e d working r e l a t i o n s h i p and local planning Cities with s u i t a b l y modified o f o u r t i m e a r e g o v e r n e d b y two k i n d s (centrifugal). phenomenon i s t h e r e s u l t advances o f the p a s t called The s p r e a d and f o r c e s of these two the m e t r o p o l i s . o f the s c i e n t i f i c century. of gravita- (centripetal), The i n t e r - a c t i o n p r o d u c e s a new f o r m o f s e t t l e m e n t from the core governments bodies. tional forces: forces of concentration of d i s p e r s a l local trends This and t e c h n o l o g i c a l of population outward has brought w i t h i t a c o r r e s p o n d i n g d e c e n t r a l i z a - iii tion o f t h e government p a t t e r n . have m u l t i p l i e d with astonishing r a p i d i t y M e t r o p o l i t a n problems, such open s p a c e , without In our local substantial government i n the o u t l y i n g areas. as water supply, t r a n s p o r t a t i o n , unbalanced some f a i r l y prehensive New u n i t s o f l o c a l sewage disposal, t a x a t i o n , c a n n o t be met institutional changes a n d com- p l a n n i n g on a n a r e a - w i d e b a s i s . Canada, we have g e n e r a l l y u s e d a committee government o r g a n i z a t i o n . However, o u r l o c a l govern- r e c e n t l y developed metropo- ments a r e u n a b l e to deal with l i t a n problems. T h e y have t o be r e - o r g a n i z e d ; a n d t h e a t t e m p t s to re-organize lines: local g o v e r n m e n t s have b e e n a l o n g (1) i n t e r - g o v e r n m e n t a l authorities; county these system f o r (3) a n n e x a t i o n arrangements; the f o l l o w i n g (2) s p e c i a l - p u r p o s e o r c o n s o l i d a t i o n ; a n d , (4) c i t y - s e p a r a t i o n and c o n s o l i d a t i o n . However, none o f t h e s e a t t e m p t s has f u r n i s h e d a s a t i s f a c t o r y solution to the manifold problems i n v o l v e d i n the development o f the m e t r o p o l i t a n a r e a as a whole. Although ancient century. of times, community p l a n n i n g c a n be t r a c e d b a c k t o t h e modern e r a o f c i t y p l a n n i n g began i n t h i s T o d a y , c i t y p l a n n i n g has b e e n r e c o g n i z e d a s a n a s p e c t the process of l o c a l government. However, r e g i o n s o f h i g h p o p u l a t i o n d e n s i t y a n d complex u r b a n d e v e l o p m e n t a c t i v i t i e s r e quire a r e s p o n s i b l e p l a n n i n g f u n c t i o n f o r the development o f regional interests. seek e s t a b l i s h m e n t The m e t r o p o l i t a n p l a n n i n g a g e n c y and a c c e p t a n c e of goals, both immediate, f o r the m e t r o p o l i t a n area's physical, should long-range and e c o n o m i c , and iv social development. planning, both I t should strive p u b l i c and p r i v a t e . to co-ordinate The most local desirable arrange- ment i s t h a t t h e m e t r o p o l i t a n p l a n n i n g f u n c t i o n i s i n t e g r a t e d into a n a r e a - w i d e and m u l t i - f u n c t i o n a l g o v e r n m e n t . the p l a n n i n g and f u n c t i o n c a n more e a s i l y decision-making operational We processes be t i e d By into this, the programs o f a n o n - g o i n g body t h a t has powers. desire e f f i c i e n t government. t a n wide o r g a n i z a t i o n i s n o t t h e most Large-scale, appropriate metropoli- scale of orga- n i z a t i o n f o r the p r o v i s i o n o f a l l p u b l i c s e r v i c e s r e q u i r e d i n a metropolis. L o c a l governments s t i l l in of their the l i v e s conserved. equal division the governments i s n e c e s s a r y . metropolitan distinction planning governments. financial resources. a t the h i g h e s t The c a n be drawn and t h o s e and a u t h o r i t i e s must balanced local o f f u n c t i o n s between the " m e t r o p o l i t a n " that reasonable and r o l e s they should be t h r o u g h c o n s o l i d a t i o n and a m a l g a m a t i o n t o the c a p a c i t y of t h e i r "local" Duties and i n t h e s e r o l e s to play However, m u n i c i p a l i t i e s c a n be made more n e a r l y i n size strengthen citizens have v i t a l of l o c a l and same argument:.' i s community to area, O n l y when a l l o f t h e s e will government between t h e c o n c e r n s o f be a p p r o p r i a t e level, Then, a community planning. population, f a c t o r s are satisfaction be maximized. B a s e d on t h e t h e o r e t i c a l f i n d i n g s , the C r i t e r i a purposes o f t e s t i n g the a c t u a l cases followings: f o r the c a n be d e r i v e d a s i n t h e V I. Metropolitan government a u t h o r i t y s h o u l d general--purpose government. II. government a u t h o r i t y s h o u l d Metropolitan powers t o p e r f o r m be have enough M e t r o p o l i t a n government a u t h o r i t y s h o u l d able by IV. legal remain controll- a c c e s s i b l e to i t s c i t i z e n s . Local m u n i c i p a l i t i e s should local as services. III. and organized g o v e r n m e n t s , and local be modified planning t o make efficient functions should be en- couraged . V. Geographic adequacy. VI. Basic metropolitan planning planning, and co-operation f u n c t i o n should c o - o r d i n a t i o n , and be research, advice and assis- tance . VII. Metropolitan planning local hypothesis on are M e t r o p o l i t a n Toronto authorities functions the are d e p t h and to prove are the t o be In Area. grounds. The three i n scope o f these o f the findings. both three Criteria Therefore, t h e o r e c t i c a l l y and Canada, t h e three metropolitan s t u d i e d under C r i t e r i a validity The Criteria to cases M e t r o p o l i t a n Winnipeg Area, s t u d i e d under C r i t e r i a theoretical proved s t u d i e d b a s e d on i t s practical M e t r o p o l i t a n Vancouver Area, in have power o f r e v i e w over plans. Three a c t u a l cases the body s h o u l d provinces I t o V; and the metropolitan areas study derived the h y p o t h e s i s have v i t a l and planning The practically are government I I I to V I I . which are test both i s able from i s properly valid. r o l e s to p l a y i n vi r e s o l v i n g our metropolitan the s u b j e c t of another problems, work. However, t h i s s h o u l d be vii ACKNOWLEDGEMENT I must e x p r e s s Wiesman o f t h e S c h o o l his my h e a r t y t h a n k s t o P r o f e s s o r Brahm o f Community a n d R e g i o n a l e x c e l l e n t s u p e r v i s i o n throughout this thesis. I am p a r t i c u l a r l y Collier o f the School terial, a d v i c e , and c r i t i c i s m . Head o f t h e S c h o o l , the course grateful the School. W. i n p r o v i d i n g ma- D r . H. P e t e r O b e r l a n d e r , t h e ' a l s o deserves h i s encouragement d u r i n g for of writing t o Dr. Robert f o r h i s generousness for Planning my s p e c i a l acknowledgement t h e whole c o u r s e o f my s t u d y i n My g r e a t e s t a p p r e c i a t i o n h a s t o be d i r e c t e d t o t h o s e planners o f t h e Lower M a i n l a n d Regional Planning D i v i s i o n o f the M e t r o p o l i t a n Corporation Winnipeg, and the M e t r o p o l i t a n Toronto co-operation terial Planning Board, the o f the Greater Planning Board f o r their and a s s i s t a n c e i n p r o v i d i n g i n f o r m a t i o n a n d ma- w h i c h c a n n o t be o b t a i n e d from elsewhere. I a l s o want t o t h a n k M i s s M. J . Dwyer, L i b r a r i a n , a n d Miss J . Wade o f t h e F i n e their should help. Arts Division, University Library, f o r M r s . Edward T. Wang, who t y p e d t h e whole thesis, a l s o r e c e i v e my g r e a t e s t a p p r e c i a t i o n a n d b e s t wishes. TABLE OP CONTENTS CHAPTER I. PAGE INTRODUCTION The 1 Problem Regional 1 Planning Metropolitan as The Means t o S o l v e 4 Problems P u r p o s e a n d Scope 5 The 7 Hypothesis Methodology 8 Definitions 9 Organization II. 11 URBANIZATION, LOCAL GOVERNMENTS, METROPOLITAN GOVERNMENTAL ORGANIZATIONS AND THEIR PLANNING FUNCTIONS I N CANADA Urbanization 12 a n d M e t r o p o l i t a n i z a t i o n i n The T w e n t i e t h Century and i n N o r t h America L o c a l and M e t r o p o l i t a n in Government 12 Organization Canada 20 L o c a l and M e t r o p o l i t a n Planning Functions 26 33 Conclusions The III. Criteria 39 f o r T e s t i n g Purpose THE METROPOLITAN VANCOUVER AREA 49 54 The Metropolitan Government A u t h o r i t y The Metropolitan and L o c a l P l a n n i n g Functions ... 6l CHAPTER PAGE 71 Conclusions IV. 74 THE METROPOLITAN WINNIPEG AREA 79 The M e t r o p o l i t a n Government A u t h o r i t y The M e t r o p o l i t a n a n d L o c a l P l a n n i n g F u n c t i o n s ... 93 Conclusions V. 97 THE METROPOLITAN TORONTO AREA The M e t r o p o l i t a n Government A u t h o r i t y The M e t r o p o l i t a n and L o c a l P l a n n i n g F u n c t i o n s SUMMARY AND 104 ... 110 121 Conclusions VI. 86 125 CONCLUSIONS The T h e o r e t i c a l V a l i d i t y o f The H y p o t h e s i s 126 The V a l i d i t y o f The C r i t e r i a 127 The V a l i d i t y o f The H y p o t h e s i s 131 A F u r t h e r S t u d y : The R o l e of Province 134 BIBLIOGRAPHY 138 APPENDIX 151 L I S T OP TABLES TABLE I. PAGE The P e r c e n t a g e o f W o r l d P o p u l a t i o n L i v i n g of II. i n Cities 2 0 , 0 0 0 and 1 0 0 , 0 0 0 People The P o p u l a t i o n Growth i n M e t r o p o l i t a n 13 Vancouver Area: 1921-1986 III. The P o p u l a t i o n Growth i n M e t r o p o l i t a n 50 Winnipeg Area: 1901-1986 IV. The P o p u l a t i o n 76 Growth i n M e t r o p o l i t a n T o r o n t o A r e a : 1921-198O V. A Comparison o f Three M e t r o p o l i t a n Areas on The C r i t e r i a 99 Based 132 L I S T OP ILLUSTRATIONS ILLUSTRATION I. PAGE 17 Pour Concepts of M e t r o p o l i s II. The Lower M a i n l a n d R e g i o n o f B r i t i s h III. The Metropolitan IV. Basic of Greater .... of the 52 77 Winnipeg Area Organization the Columbia Metropolitan Corporation 80 Winnipeg V. Metropolitan Toronto M u n i c i p a l i t i e s 100 VI. Metropolitan Toronto Planning 101 VII. VIII. Toronto The Census M e t r o p o l i t a n Organization Metropolitan IX. The Rationale o f the Area 102 Area Municipality of 106 Toronto f o r an Powers w i t h i n t h e Areal Division of Governmental Modern D e m o c r a t i c S t a t e 133 CHAPTER I INTRODUCTION I. About a c e n t u r y The ago, problem of a completely present wrote, we are tending, do it." The much h i g h e r 1950 " I f we we process I85O Between different to i960 estimated in urban places could f i r s t was the world. By 1950 168 standard per cent 1800 twice declining know where we the center a r e , and and to I85O. But the whither how to r a t e of t h a t o f the p r o c e e d i n g i960, of a l l s i z e s fifty the world's p o p u l a t i o n had a l r e a d y reached 33 a change years. living per cent of population." ' 1 In North America, more s t r i k i n g than Index of u r b a n i z a t i o n changed a t from that i n world's t o t a l context of u r b a n i z a t i o n i s a c c e l e r a t i n g a l a r m i n g l y . r a t e than was is t i m e and c o u l d b e t t e r j u d g e what t o do, 1950 and It the Abraham L i n c o l n i n d e s c r i b i n g a p r o b l e m o f mushrooming s u b u r b s and cities from Problem than the t h e phenomenon o f m e t r o p o l i t a n i z a t i o n r a p i d process almost n i n e t y m i l l i o n metropolitan areas i n the of u r b a n i z a t i o n i n Americans United lived in the the S t a t e s , about 57 p of the total population. Following this metropolitan K i n g s l e y D a v i s , "The U r b a n i z a t i o n o f t h e Human P o p u l a t i o n " , E k i s t i c s . V o l . 21, No. 122 ( J a n u a r y , 1966), p . 4. P h i l i p M. H a u s e r , Growth". Urban L a n d. V o l . 2 "The 17, Challenge of Metropolitan No. 11 (December, 1958), p . 3. 2 area e x p l o s i o n were t h e serve blems t h a t have occured these problems without and and have i n studying implementation limitations their of area o f time area. planning Solutions inhibited are mostly governments wide b a s i s region functions and the e x i s t e n c e areas. living and of problems. boundary p r o b l e m s , as area-wide or others--an of t h e programs on an which confront that attempt t o deal areas. any an which The p r o b l e m i s government. problems--whether f o r careful with such distribution of needs f o r s p e c i f i c exists area- jurisdictions how o n e v i e w s m e t r o p o l i t a n as need. Efforts, of overlapping place of area-wide a s t o o many g o v e r n m e n t s a n d n o t e n o u g h important boundaries. needs; c o n t i n u i t y a r e impeded by t h e unplanned most o f o u r m e t r o p o l i t a n Regardless i s , they by t h e complex s t r u c t u r e o f l o - i n metropolitan urbanized described that on t h e a c t i v i t i e s with t o resolve, the d i f f i c u l t i e s characterize Most o f i s lacking i n others; and scope a r e placed s e t up t o d e a l pro- Many c o m m u n i t i e s a r e metropolitan most o f t h e agencies cal i n nature, impact on t h e q u a l i t y t h e whole m e t r o p o l i t a n help local areas. i n scope merely by j u r i s d i c t i o n a l They a r e area-wide within human a n d p h y s i c a l within metropolitan are not purely c a n n o t be l i m i t e d social, services, co-ordination metropolitan The a c t o f s e r v i n g one n e e d , o r a d m i n i s t e r i n g one ^ V i n c e n t O s t r o m , C h a r l e s M. T i e b o u t a n d R o b e r t W a r r e n , "The O r g a n i z a t i o n o f G o v e r n m e n t i n M e t r o p o l i t a n A r e a s : A T h e o r e t i c a l I n q u i r y " , R e g i o n a l Development and P l a n n i n g . J . F r i e d m a n n a n d W. A l o n s o , e d i t o r s ( C a m b r i d g e , M a s s a c h u s e t t s : T h e M. I . T. P r e s s , 1 9 6 4 ) , p . 5 4 2 . 3 function i m p i n g e s u p o n o t h e r f u n c t i o n s i n many ways, s u c h t r a n s p o r t a t i o n p o l i c y upon l a n d use one governmentagency t h e i r programs. affects Consquently, decisions. other the a c t i o n of government a g e n c i e s l a c k of a process ment i n m e t r o p o l i t a n a r e a i s regarded tropolitan Luthur area problem. The as as b e i n g t h e of and govern- crucial me- Gulick stated that: . . . I t t h u s seems c l e a r t h a t we now n e e d t o c r e a t e i n some o f t h e l a r g e r m e t r o p o l i t a n a r e a s an e n t i r e l y new l a y e r o f a r e a - w i d e s e l f - g o v e r n m e n t b r o a d enough t o c o v e r t h e m e t r o p o l i t a n map. . . .The m a j o r t a s k f o r t h i s new l a y e r of l o c a l self-government i s not p r i m a r i l y administrative. I t i s p o l i t i c a l , n a m e l y t h e d e v e l o p m e n t and a d o p t i o n o f m a j o r p l a n s and p o l i c i e s f o r t h e e n t i r e m e t r o p o l i t a n r e g i o n p a r t i c u l a r l y as t o l a n d use and t h e t r a n s p o r t a t i o n s y s t e m s ; w a t e r s u p p l y ; a i r and w a t e r p o l l u t i o n ; w a s t e d i s p o s a l ; s l u m c l e a r a n c e and h o u s i n g ; r e g i o n a l r e c r e a t i o n f a c i l i t i e s ; t h e m a i n t e n a n c e o f minimum s t a n d a r d s on h e a l t h , f i r e p r o t e c t i o n and c r i m e ; c i v i l d e f e n s e ; and t h e d e t e r m i n a t i o n o f t h e methods o f f i n a n c i n g ^ t h e s e b r o a d community n e c e s s i t i e s and d i v i d i n g t h e c o s t s . The r e - o r g a n i z a t i o n of l o c a l governments to d e a l m e t r o p o l i t a n problems i s t h e r e f o r e claimed two rather definite and opposing the recommendation f o r v e r y c e r t a i n areas; the other arrangements. The simple i n g . c r e a t i o n o f one politan area. i d e a s have emerged. simple structural and One is solutions i n i s an e m p h a s i s on f e d e r a l , two-level s o l u t i o n s are o f t e n u n i t a r y , involy.r government e n t i t y f o r t h e whole o f a m e t r o - S u c h s o l u t i o n s a r e f r e q u e n t l y recommended i n t h e s m a l l e r m e t r o p o l i t a n areas Attack. as n e c e s s a r y ; with and i n those whose p r e - e x i s t i n g L u t h u r G u l i c k , M e t r o - C h a n g i n g Problems, and,.Lines ..of ( W a s h i n g t o n , D. C. :~" G o v e r n m e n t a l A f f a i r s I n s t i t u t e , 1957), p. 26. 4 government structure i s relatively arrangement i s regarded metropolitan areas. simple. The f e d e r a l J s u i t a b l e i n t h e m a j o r and more A r t h u r Bromage s t a t e d t h a t complex : M e t r o p o l i t a n s p r a w l has o v e r - r e a c h e d o u r e n l a r g e d c e n t r a l c i t i e s and o u r c i t y - c o u n t i e s i n t h e g r e a t agglomerations. O n l y f e d e r a t i o n o f governments and the b u i l d i n g o f an u p p e r t i e r m e t r o p o l i t a n c o u n c i l , w i t h l e g i s l a t i v e and a d m i n i s t r a t i v e p r o c e s s e s t o r deal with various aspects of f u n c t i o n s , w i l l s u f f i c e . II. Regional Planning a s t h e Means t o S o l v e Metropolitan Problems In the past, r e g i o n a l planning dealt p r i m a r i l y with as i n the United the problem of resource t h e Tennessee V a l l e y A u t h o r i t y program, proving t h e economic w e l f a r e has m a i n l y been circulation. services of people, S t a t e s has development, such as a means f o r i m - while city planning concerned w i t h problems o f l a n d use c o n t r o l and However, i t i s now r e c o g n i z e d do r e q u i r e r e g i o n a l t r e a t m e n t s u c h as w a t e r a n d e l e c t r i c i t y supply, t h a t some i n metropolitan specific areas, t r a n s p o r t a t i o n , sewage disposal, flood control, g a r b a g e a n d waste d i s p o s a l , a i r and water p o l l u t i o n c o n t r o l , r e c r e a t i o n a l space and facilities, ^ S t a n l e y S c o t t , " M e t r o p o l i t a n P r o b l e m s and S o l u t i o n s , A D i s c u s s i o n " , Metropolitan^Area Problems. S t a n l e y S c o t t , e d i t o r (Berkeley, C a l i f o r n i a : B u r e a u o f P u b l i c A d m i n i s t r a t i o n and U n i v e r s i t y E x t e n s i o n , U n i v e r s i t y o f C a l i f o r n i a , i 9 6 0 ) , p . 18. ^ A r t h u r Bromage, " R e p r e s e n t a t i o n i n M e t r o p o l i t a n G o v e r n ment", P r o c e e d i n g s 6 3 r d . N a t i o n a l C o n f e r e n c e o n Government. N a t i o n a l M u n i c i p a l L e a g u e , 1958, p. 26. — 5 police protection, education, h e a l t h a d m i n i s t r a t i o n and wide p l a n n i n g . We d e v e l o p m e n t and c o n t r o l — s h o u l d be f r a m e w o r k and have a g r e e d t h a t the that both logical of these area- functions — brought together in a common framework f o r t h i s purpose i s 7 the city region. Regional planning can help trialization and for i n t e g r a t i o n of the in balanced the internal migration r e g i o n , and the and environmental proper regional planning However, as necessary who should and, (2) the co-operation planning, responsibility as P u r p o s e and s t a t e d above. need activities their satisfied by level. of m u n i c i p a l i t i e s the problems a r e : f o r metropolitan and most (l) planning; efficient? Scope need f o r r e g i o n a l p l a n n i n g t o become e f f e c t i v e with as The e v a l u a t i o n of o n l y be indus- a g r e a t number o f m u n i c i p a l i t i e s what f o r m o f m a c h i n e r y i s b e s t The must be are way. development a t the m e t r o p o l i t a n f o r metropolitan III. evident and assume t h e different i m p l i c a t i o n s can there within a metropolis, urbanization, i n a balanced need f o r c o n t i n u o u s social is to guide i n metropolitan areas However, i f m e t r o p o l i t a n p l a n n i n g is is i n the f o r m u l a t i o n of p u b l i c p o l i c y , i t integrated into l e g i t i m a t e power. a formal The area-wide p o l i t i c a l reason for this structure i s t h a t any plan 'John F r i e d m a n n , "The C o n c e p t o f a P l a n n i n g R e g i o n The E v o l u t i o n o f an I d e a i n t h e U n i t e d S t a t e s " , R e g i o n a l Devel o p m e n t and P l a n n i n g . J . F r i e d m a n n and W. A l o n s o , editors (Cambridge: The M. I . T. P r e s s , 1 9 6 4 ) , p . 512. - 6 w h i c h s e e k s t o c o n t r o l and litan a r e a r e q u i r e s the government. by of of a form of allowing plans something ignored a metropolitan area or area. There- i s governed l e a d i n t u r n t o more a p p r o p r i a t e m e a s u r e s f o r t h e p r o v i s i o n metropolitan tanization a steady per planning. i s also proceeding t r e n d toward the cent of areas. will rural at a rapid of t h i s u r b a n and, farm.^ as has over T h e r e has trend: 80 i n seventeen f o r e c a s t sees per cent of Within these rapidly population was the cent w i l l growing m e t r o p o l i t a n area-wide c h i e f f o r c e behind be areas, problems, and been s t a t e d t h a t the need f o r comprehensive l a r g e areas 40 a further i n - the the m e t r o p o l i t a n governments i n T o r o n t o these than been metropolitan o f the remainder, o n l y nine per t h e r e have b e e n many ways t o meet t h e i r such rate. metropoli- b i g Canadian c e n t e r s — m o r e G o r d e n C o m m i s s i o n 198O The be o f u r b a n i z a t i o n and Canada's p o p u l a t i o n l i v e s tensification It t o be metropo- metropolitan s m a l l , l e g a l l y p r o t e c t e d segments o f t h e I n Canada, t h e p r o c e s s t growth of the T h i s government must have power t o do f o r e , b e t t e r a n a l y s i s o f how can the establishment about r e g i o n a l p l a n s , not vetoed to guide Winnipeg. planning the formation D a n i e l R. G r a n t , " M e t r o ' s T h r e e F a c e s " , N a t i o n a l . C i v i c R e v i e w . V o l . LV, No. 6 ( J u n e , 1 9 6 6 ) , p . 320. ^ L . 0 . G e r t l e r , " R e g i o n a l P l a n n i n g and D e v e l o p m e n t " , R e g i o n a l and-^Resource. P l a n n i n g ^ i n -Canada. R a l p h R. K r u e g e r , et_ a t . , e d i t o r s ( T o r o n t o : H o l t , R i n e h a r t and W i n s t o n o f Canada, Ltd.; 1 9 6 3 ) , p . 24. of such m e t r o p o l i t a n organizations. problems of r e g i o n a l p l a n n i n g L. 0. G e r t l e r , are t h a t : However, i n this country, the general as I n d i c a t e d by ( l ) the p l a n n i n g f u n c t i o n covers the u r b a n - c e n t e r e d r e g i o n i n o n l y a few a r e a s o f the country; (2) the regional planning lities bodies can e a s i l y r e j e c t support i s not a r e m o s t l y a d v i s o r y and their plans; sufficient. and, t h e s i s t h e n i s an t o d i s c o v e r the s t a t u s of the r e g i o n a l p l a n n i n g function i n Canada's m e t r o p o l i t a n titutional establishments; metropolitan areas; study, corrected, function the m e t r o p o l i t a n ins- a n d t h e r e l a t i o n s h i p s among t h e government o r g a n i z a t i o n s , m e t r o p o l i t a n f u n c t i o n s , and l o c a l m u n i c i p a l i t i e s . this (3) provincial 1 1 The m a i n p u r p o s e and s c o p e o f t h i s attempt municipa- the e r r o r s i n the past arid t h a t f u t u r e t r e n d s planning I t i s hoped t h a t c a n be d i s c o v e r e d of metropolitan through and planning i n Canada c a n be i n d i c a t e d . IV. The The Hypothesis conditions f o r successful metropolitan planning a r e many and have b e e n s t u d i e d i n many r e s e a r c h p r o j e c t s and reports. The h y p o t h e s i s the m e t r o p o l i t a n level of t h i s thesis i s : " f o r planning at to- ~-.be s u c c e s s f u l , i t must be inte- A n t h o n y Adamson, "How t o Make R e g i o n a l P l a n n i n g Community P l a n n i n g R e v i e w . V o l . 1 1 , No. 4 ( 1 9 6 1 ) , p . 5 . 1 1 Gertler, op_. c i t . . p. 3 1 • Work" 8 grated and into a well o r g a n i z e d area-wide must o b t a i n a w e l l c o - o r d i n a t e d working suitably modified l o c a l The metropolitan-wide governments, but ty g o v e r n m e n t s and meaning o f the term necessarily indicate It importance i s also necessary that and planning function dealing with while l o c a l a questionairre available i n the U n i v e r s i t y case encouraged. i n this to gather the v a l i d i t y thesis on t h e ex- literature Columbia of t e s t i n g the supplei s not library. o f t h e h y p o t h e s i s , two are employed: t h e o r e t i c a l , the purposes i s an the i n f o r m a t i o n t h a t of B r i t i s h and kinds case Toronto of study cases, c r i t e r i a theoretical findings. o f V a n c o u v e r , W i n n i p e g and study. metro- Methodology mented by Areas of planning functions I n t e n s i v e s t u d y o f the a v a i l a b l e e s t a b l i s h e d based authori- "well co-ordinated" and research techniques local governments. method o f e x a m i n a t i o n Por powerful government The research. not with high l e v e l the term w i t h i n the m e t r o p o l i t a n area are s t i l l To p r o v e planning bodies." " w e l l o r g a n i z e d " does suitably modified local V. with organization for providing services politan-wide p l a n n i n g matters tan local rather a metropolitan-wide means a m e t r o p o l i t a n - w i d e tensive relationship government a u t h o r i t y w i t h v e r y weak only of metropolitan-wide the authority. the e s t a b l i s h m e n t o f a t o t a l l y w i t h p r o p e r power and support from government are The M e t r o p o l i - are s e l e c t e d f o r 9 VI. It thesis is felt s h o u l d be Planning. Definitions t h a t some t e r m s a r e u s e d t h r o u g h o u t defined: Primarily a way of t h i n k i n g about s o c i a l problems, p l a n n i n g i s o r i e n t e d pre-dominantly is deeply concerned decisions; gram. and this w i t h the strives Whenever t h e s e relation modes o f t h o u g h t economic toward the f u t u r e ; of goals f o r comprehensiveness and to collective i n p o l i c y and pro- are a p p l i e d , there is a 12 presumption that planning City Planning. of with civic social design. o r g a n i z i n g , and for and economic t r e n d s and sound I t involves a continuing process p r e s e n t i n g a broad and renewal. o b j e c t i v e s of s o c i a l , considering both and i n the p h y s i c a l environment of a c i t y u r b a n d e v e l o p m e n t and local done. A means f o r s y s t e m a t i c a l l y a n t i c i p a t i n g a c h i e v i n g adjustment sistent i s being e c o n o m i c , and i m m e d i a t e needs and principles of comprehensive I t Is designed those con- to deriving, program fulfil physical well-being, of the foreseeable 1^ future. Regional J Planning. scientific Regional undertaking p l a n n i n g must be of a s p e c i a l k i n d . thought o f as a Primarily oriented 12 J . P r i e d m a n n , " R e g i o n a l P l a n n i n g as a F i e l d o f S t u d y " , R e g i o n a l D e v e l o p m e n t and P l a n n i n g . J . F r i e d m a n n and W. A l o n s o , e d i t o r s ( C a m b r i d g e : The M. I . T. P r e s s , 1 9 6 4 ) , p . 6 l . ^ F . S t u a r t C h a p i n , J r . , U r b a n L a n d Use P l a n n i n g bana: U n i v e r s i t y of I l l i n o i s P r e s s , 1965), p. v i . (Ur- 10 to the future, i t looks purposes and ordering of spatial to the r e l a t i o n s h i p between arrangements. human a c t i v i t i e s social I t i s concerned with the i n supra-urban s p a c e — t h a t i s , in 14 any area which i s l a r g e r than a Regional on law and. u n d e r t a k e n b y directed towards a manner t h a t establish the planning city. i s also defined a form of as a process, responsible based government, i n f l u e n c i n g development, p r i v a t e or p u b l i c results, regional s o u n d e s t use single of i n the a r e a s where p e o p l e communities, resources i n the that best our settle and environment and civilization is in capable of e f f e c t i n g . ^ 1 Metropolitan designing Planning. the spatial Metropolitan arrangements planning of an i s a process activity-engaged lation within metropolitan space and, tional decisions l e a d development towards that goals. These s p a t i a l help attain, to cerned an with integral with the will goals must of certain higher-order, qualities aspect of of establishing policies, reflect, non-spatial urban l i f e governing. popu- i n t u r n , f o r making course Being that are centrally i t is a political for ra- desired and in goals turn con- sought. It is concerned activity. ^ 1 14 F r i e d m a n n , op. fiit.. p. 63. " ^ G e r t l e r , op_. c i t . . p . 26. " ^ S t a n l e y S c o t t ( e d . ) , M e t r o p o l i t a n A r e a P r o b l e m s (Berk e l e y , C a l i f o r n i a : B u r e a u o f P u b l i c A d m i n i s t r a t i o n and Univers i t y E x t e n s i o n , U n i v e r s i t y of C a l i f o r n i a , I960), p. 134. 11 Municipality. In t h i s city, urban area or other t h e s i s a m u n i c i p a l i t y means a having powers o f l o c a l town, self-govern- ment. Metropolitan Census o f Area. Metropolitan in appropriate (2) This s u b d i v i s i o n ; and, research grounds. on i f a l l of of the hypothesis Finally, research hypothesis. i s a study these the ( l ) the problem i s urban (3) the boundaries of a i t i s t h o u g h t t o be an 17 ' Organization the problem, the there municipality i s t h e s i s c o n s i s t s of s i x Chapters. validity 1966 i n the s u b j e c t f o r community d e c i s i o n - m a k i n g . Chapter I I , t h e o r e t i c a l V, satisfied: i t s scope transcends VII. and defined A problem i s metropolitan c o n d i t i o n s are single p o l i t i c a l tical as area. Problem. character; tains Census a r e a , Canada, w h i c h i n c l u d e s more t h a n one a metropolitan following Any cases on one the definitions. i s used to t e s t In each of metropolitan t e s t s the C h a p t e r VI and Chapter I the In theore- Chapters I I I , IV area; hypothesis contains the con- on and the i t s practical summary and conclu- sions . •••'James G. Coke, "The O b j e c t i v e s o f M e t r o p o l i t a n S t u d y " , Metropolitan Analysis: I m p o r t a n t E l e m e n t s o f S t u d y and A c t i o n . S t e p h e n B. Sweeney, e d i t o r ( P h i l a d e l p h i a : U n i v e r s i t y o f P e n n s y l v a n i a P r e s s , 1958), p . 21. CHAPTER I I URBANIZATION,- LOCAL GOVERNMENTS, METROPOLITAN GOVERNMENTAL ORGANIZATIONS AND FUNCTIONS IN I. Urbanization and 5000 seats B. first C. I n the of the leaders CANADA Metropolitanization i n T w e n t i e t h C e n t u r y and The cities i n North appeared political, the cities. L e w i s Mumford once s a i d , " t h e landscape."" " This 1 end of the tury with transformation nineteenth the subway, and reaching was The 1750; 2.7 the the impact decennial percent 4.5 century i n v e n t i o n of the c a r , the was of p o p u l a t i o n i t s complex o r g a n s and of the was e a r l y i n the telephone, the 3.2 burst and open over the entire of the percent 5.3 twentieth electric and the cen- street- E v e n more f a r - a u t o m o b i l e and to 1800; cultural s e t i n motion toward r a t e of increase f r o m 1750 were p r i m a r i l y c i t y has organizations t o 1700; and between v i l l a g e s powered e l e v a t o r . f r o m 165O percent and 6000 revolution dramatically reversed scattered cities c o m m e r c i a l , and industrial distribution America age, religious, The the sometime b e t w e e n pre-industrial of s o c i e t y . THEIR PLANNING truck. world population f r o m 1700 percent f r o m 1800 to to J . C. B o l l e n s and H. J . Schmandt, The M e t r o p o l i s t Its P e o p l e . P o l i t i c s , and E c o n o m i c L i f e (New Y o r k : H a r p e r and Row, P u b l i s h e r s , 1 9 6 5 ) , p . 37. 13 1850; to 6 . 5 p e r c e n t f r o m I85O t o 1900; and 8 . 3 p e r c e n t f r o m 1950. 1900 From I95O t o i 9 6 0 t h e w o r l d p o p u l a t i o n i n c r e a s e d f r o m 2,400 m i l l i o n a decade. The t o 2,917 million, a g a i n o f 21.5 United Nations p r e d i c t e d percent i n t h a t , by t h e y e a r 2000, 2 t h e w o r l d p o p u l a t i o n w i l l r e a c h 6,267 The million. number o f c i t i e s i n t h e w o r l d w i t h a p o p u l a t i o n o f 1 0 0 , 0 0 0 o r more i n c r e a s e d f r o m 36 i n ; 1800 i 9 6 0 t h e number had i n c r e a s e d t o 1 , 1 2 8 . w o r l d p o p u l a t i o n l i v i n g i n c i t i e s can be t o 678 The by 1950; precentage seen i n the by of following table: TABLE THE I PERCENTAGE OF WORLD POPULATION L I V I N G C I T I E S OF 2 0 , 0 0 0 AND 100,000 PEOPLE* IN C i t i e s of 20,000 C i t i e s o f 100,000 or o r more 1800 I85O 1900 1950 more 2.4 4.3 9.2 20.9 1.7 2.3 5-5 13.1 K i n g s l e y D a v i s , " O r i g i n and Growth o f U r b a n i z a t i o n " , M e t r o p o l i s ; V a l u e s i n C o n f l i c t . C. E . E l i a s , e t a l . , e d i t o r s ( B e l m o n t , C a l i f o r n i a : Wadsworth P u b l i s h i n g Co., I n c . , 1964), p . 12. Homer H o y t , "The G r o w t h o f C i t i e s f r o m 1800 t o I960 and F o r e c a s t s t o Y e a r 2000", L a n d E c o n o m i c s . Volume XXXIX, No. 2 (May, 1963), p . . 171. 3 Ibid. p. 170. 14 It the was earth's also pointed out p o p u l a t i o n , o r 590 metropolitan areas 100,000 of I960, 20 t h a t by m i l l i o n people, percent of were l i v i n g in as many as in or more—50 times 1800/ The reveal United States t h a t more t h a n Census o f 1920 half of urban areas. In i960, 69.9 United was recorded in States Standard In tics, the w h i c h 62.9 (5.1 the percent of the t o the t o t a l p o p u l a t i o n i n 1951 m i l l i o n ) was (8.8 rural. By 63 Dominion Bureau of Statis- n e a r l y 14 m i l l i o n , u r b a n and the; c e n s u s y e a r , 37.1 of the According figures r e l e a s e d by the seventeen metropolitan m i l l i o n ) of the Of accounted f o r 63.93 Schmandt, op_. cit.. p. set 69.6 of Canada's percent million ^ N e l s A n d e r s o n , " A s p e c t s o f U r b a n i s m and U r b a n i s m and U r b a n i z a t i o n . N e l s A n d e r s o n , e d i t o r E . J . B r i l l , L e i d e n , 1964), p . 3. total this to another t o t a l u r b a n p o p u l a t i o n o f 8.8 ^ B o l l e n s and the Dominion Bureau of S t a t i s t i c s , areas of percent 196l, percent urban. the Area'.*"' m i l l i o n people. was in resided p o p u l a t i o n (had i n c r e a s e d t o 18.2 total lived percent Was m i l l i o n ) was to population of as urban-', w h i l e Canada, a c c o r d i n g the f i r s t American people Metropolitan S t a t i s t i c a l percent was in (5«6 1951; Urbanization", (Netherlands: 12. ^ J . S. V a n d i v e r , " U r b a n i z a t i o n and U r b a n i s m i n t h e U n i t e d S t a t e s " , U r b a n i s m and U r b a n i z a t i o n . N e l s A n d e r s o n , e d i tor ( N e t h e r l a n d s : E . J . B r i l l , L e i d e n , 1964), p . 161. 15 and of i n 196I the these figures rose t o 64.28 p e r c e n t t o t a l u r b a n p o p u l a t i o n o f 12.7 t r a t i o n of m e t r o p o l i t a n areas O n t a r i o w h i c h has million. (8.1 million) The concen- i s g r e a t e s t i n the Province seven of these seventeen standard of metropoli- 7 tan areas. 1 Cities of our time a r e e v i d e n t l y governed by of g r a v i t a t i o n a l f o r c e s : f o r c e s of concentration and f o r c e s of d i s p e r s a l forces ing are the (centrifugal). city's nature and becoming urban, t h e r e decentralization. p r o d u c e d a new no longer a " c i t y , " as on either. This combination t i o n has resulted cal the called that i n s t i t u t i o n the p a s t ; but century. r e g i o n i s o f t e n a s s o c i a t e d with the Because o f the the old city limits. Al- two the had trends has metropolis. It is been understood a in "country," o f c e n t r a l i z a t i o n and d e - c e n t r a l i z a - l a r g e l y from the u r b a n p o p u l a t i o n has form. o t h e r hand, i t i s c e r t a i n l y not advances of the p a s t biles. transform- u r b a n a r e a s , an i n c r e a s i n g i n t e r - a c t i o n of these form of settlement of more o f t h e p o p u l a t i o n i s i s , w i t h i n the The kinds city, r e b u i l d i n g i t i n a new t h o u g h on a n a t i o n a l s c a l e more and kinds (centripetal) T h e s e two i n a c t i o n upon the m a t e r i a l of the two scientific The rise I n the technologi- o f the metropolitan i n c r e a s i n g use o f automo- ' i n t r o d u c t i o n of the s i n c e the and automobile, 1930's r a p i d l y spread United S t a t e s , the the beyond suburbs by 'T. J . P l u n k e t t , U r b a n Canada and I t s Government r o n t o : M a c m i l l i a m o f Canada, 1 9 6 8 ) , p . 7 7 . the i960 (To- 16-' had almost and had equaled 48.6 the p o p u l a t i o n t o t a l percent of the ly as cations, and scientists a mosaic of sub-areas inter-dependent on the central o cities metropolitan residents. Most comtemporary s o c i a l metropolis of tend to regard whose i n h a b i t a n t s a r e a d a i l y b a s i s i n terms o f needs, c o m m u t a t i o n t o and f r o m work. The the high- communi- central and o t h e r p o r t i o n s o f t h e m e t r o p o l i t a n a r e a have a h i g h d e g r e e of e c o n o m i c and en- social interaction. l a r g e s f r e e d o m o f c h o i c e , and attracts f u r t h e r growth. vitality and large Now, g i v e n the m e t r o p o l i s only metropolis inventories, transportation f a c i l i t i e s , promotional source nature. those of a f i n a n c i a l , of economic s t r e n g t h of the m e t r o p o l i s and and open a r e a s . ^ a n a l y z i n g these g e o g r a p h e r s and are spatial nuclei. Bollens main of our nation. industrial, re- a r r a n g e m e n t s have b e e n d e v i s e d sociologists. T h o s e most commonly r e f e r r e d Highly simplified and technical, H o w e v e r , s e v e r a l ways o f d e s c r i b i n g c o n c e n t r i c zones, s e c t o r s , starshaped multiple support special legal, and amazing of land-use.can'be\ i d e n t i - w i t h i n the m e t r o p o l i s : c e n t r a l business, sidential, and can Such s e r v i c e s c o n s t i t u t e the G e n e r a l l y , f o u r b a s i c types fied growth f r e e d o m o f c h o i c e i n tur-n T h i s has s t a y i n g power. services—particularly and Thus m e t r o p o l i t a n by to c o n f i g u r a t i o n s , and drawings of these Schmandt, op_. c i t . . p . four 19. H a n s B l u m e n f e l d , "The U r b a n P a t t e r n " , The Modern Metropolis : I t s O r i g i n . G r o w t h . C h a r a c t e r i s t i c s . . and P l a n n i n g . P a u l D. S p r e i r e g e n , e d i t o r ( C a m b r i d g e , M a s s a c h u s e t t s : The M. I . T. P r e s s , p. 9 1967), 54. 17 t h e o r e t i c a l p a t t e r n s are p r e s e n t e d i n the f o l l o w i n g f i g u r e : POUR CONCEPTS OF METROPOLIS STAR-SHAPE MULTIPLE NUCLEI 1 Economic Nucleus 2 Transition Zone 3 Working Class Residential 4 Middle Class Residential 5 Upper-Middle and Upper Class Residential — M a j o r Traffic Arteries A c c o r d i n g t o the f i r s t view, a m e t r o p o l i t a n a r e a tends to resemble a s e r i e s o f c o n c e n t r i c zones d i f f e r e n t i a t e d bytype o f l a n d use and s t r u c t u r e . The s e c t o r concept i s a modi- f i c a t i o n o f the c o n c e n t r i c zone p a t t e r n . symmetry o r homogeneity Upon q u e s t i o n i n g the o f such zones, I t holds t h a t growth 18 occurs i n s e c t o r s which extend the p e r i p h e r y o f the a r e a . ther refinement as a l i n e a r the center toward The s t a r - s h a p e d p a t t e r n i s a f u r - o f the s e c t o r theory. I t views urban development a l o n g t h e main r a d i a l s — t h e transportation arteries The r a d i a l l y from growth roads and t h a t converge on t h e c e n t r a l core. f o u r t h method o f a n a l y z i n g t h e s p a t i a l p a t t e r n r e j e c t s t h e n o t i o n t h a t t h e community i s u n i - c e n t e r e d , a s t h e c o n c e n t r i c z o n e l t h e o r y l e a d s one t o assume. phenomena o f u r b a n l i f e lysis denies a single the t h a t the round center. I t holds institutions, i n clusters, of daily life tural facilities, comparative of business services, and t h e shopping buying. revolves mainly district—are about nucleus— concentrated the and i n d u s t r y , f i n a n c i a l major government a g e n c i e s , specialized professional t h i s method o f a n a - that w i t h i n the p r i n c i p a l core o r c e n t r a l business home o r r e g i o n a l o f f i c e s and occur P o i n t i n g o u t t h a t many l e g a l and o t h e r t h e t h e a t r e and o t h e r cul- area f o r s t y l e merchandise C l u s t e r e d about t h e core through-out the m e t r o p o l i t a n area i s a c o n s t e l l a t i o n o f subcenters: neigh- borhood and r e g i o n a l s h o p p i n g business districts, outlying industrial ment o f f i c e s . This last and 1 0 realistic. The brought c e n t e r s , suburban c e n t r a l spread c o n c e n t r a t i o n s , and l o c a l concept appears t h e most o f p o p u l a t i o n outward from with i ta corresponding govern- meaningful t h e core has d e c e n t r a l i z a t i o n o f the govern- B o l l e n s a n d Schmandt, o p . c i t . . p p . 50-55• 19 mental p a t t e r n . As the o r i g i n a l boundaries t o accommodate t h e newcomers, t h e c i t y were e x p a n d e d by annexing become corporate l i m i t s adjacent areas. By inadequate of t h e end t h e n i n e t e e n t h c e n t u r y , however, t h e o u t w a r d movement started its t o out-run) the a b i l i t y l e g a l boundaries. over the like a formless units landscape, of l o c a l districts, tiplied day, and of the city to of had enlarge With the d i f f u s i o n of p o p u l a t i o n a l l t h e m e t r o p o l i s b e g a n t o l o o k more and agglomeration of people government—cities, and enterprise. towns, v i l l a g e s , a wide v a r i e t y o f o t h e r s p e c i a l with astonishing r a p i d i t y governmental fragmentation characteristic core the of our more New school districts—mul- i n the o u t l y i n g a r e a s . To- i s r e c o g n i z e d as a m a j o r metripolis. I n t h e U n i t e d S t a t e s , a c c o r d i n g t o t h e 1962 Government, t h e r e were 18,442 l o c a l Census o f g o v e r n m e n t s , an a v e r a g e of 11 eighty-seven f o r each m e t r o p o l i s . be and seen i n Canada. legally i n neighboring similar situation S i n c e e a c h government i s a s e p e r a t e independent, u n i l a t e r a l l y and The without i t i s a b l e , i f I t wishes, concern can unit to act f p r the d e s i r e s o f the people jurisdictions. Because of these areas, problems, such circumstances as t h e i m p a c t w i t h i n our of urban l a n d uses agriculture, s u f f i c i e n c y o f w a t e r s u p p l y , sewage availability o f open s p a c e , I b i d . . p. 142. metropolitan on disposal, c h a o t i c t r a n s p o r t a t i o n systems and 20 unbalanced stantial t a x a t i o n , can institutional area-wide not be c h a n g e s and Metropolitan Organization Local This respect sub- comprehensive p l a n n i n g for Government i n Cariada than either of the i s because the B r i t i s h two senior levels North America Act t h e power t o make laws r e s p e c t i n g l o c a l assigned some f a i r l y g o v e r n m e n t i n Canada i s i n a d i f f e r e n t c o n s t i t u - tional position that without needs. I I . L o c a l and ment. met e x c l u s i v e l y to the p r o v i n c e s . is similar to t h a t of the g o v e r n m e n t comes u n d e r t h e The United jurisdiction of govern- provided m a t t e r s was system i n States - this where local of the I n d i v i d u a l state. Many f a c t o r s have an of l o c a l extent influence i n determining government w h i c h d e v e l o p s i n a country, to which i t i s s e l f - g o v e r n e d . factors are location, Some o f t h e the p h y s i c a l c h a r a c t e r i s t i c s its political and and of the the type the important country—its c o n s t i t u t i o n a l development, and 12 its n a t i o n a l development. under the jurisdiction systems. Generally, for their local and other forms o f l o c a l (Toronto: As local government i n Canada i s of the p r o v i n c e s , Canada has utilized government o r g a n i z a t i o n . there are ten a committee This distinct system committee government o r g a n i z a t i o n a r e system discussed K e n n e t h G r a n t G r a w f o r d , C a n a d i a n M u n i c i p a l Government U n i v e r s i t y of Toronto Press, 1 9 5 4 ) , p. 1 5 . 21 briefly The below: Council-Committee councils port System. c o u n c i l as Council committees are standing committees. to report the majority of municipal i n Canada o p e r a t e t h r o u g h c o m m i t t e e s w h i c h must t o the their The on matters assigned kinds—special some p a r t i c u l a r p r o b l e m and hand, are manent b a s i s o f two the and to committees N o r m a l l y , s p e c i a l committees are a s s i g n m e n t has other a whole on been c o n c l u d e d . are u s u a l l y e s t a b l i s h e d by have a c o n t i n u i n g disbanded Standing rethem. and set up after committees, b y - l a w on a on per- responsibility for certain matters. The most f r e q u e n t multiplicity tails, on The is the of committees, the duplicated c o u n c i l members' often called, this system are pre-occupation the w i t h minor d e b a t e , and the de- demands time. attempts The c o u n c i l - m a n a g e r s y s t e m as i t to b r i n g about a c l e a r - c u t administration. responsibility is left manager, w h i l e the To this to a s i n g l e o f f i c i a l council i s responsible end, division administrative known as f o r the the city formulation policies. The better in of d i s c u s s i o n and Council-Manager System. b e t w e e n p o l i c y and of critisisms p r o v i s i o n of p r o f e s s i o n a l a d m i n i s t r a t i v e co-ordination p o l i c y and Generally of m u n i c i p a l administration s p e a k i n g , the are administration, highly desirable p o s i t i o n of the management, and continuity objectives. manager i s a less 22 d o m i n a n t one this i n Canada t h a n i n t h e s y s t e m does n o t tween p o l i c y and be the a c o m p l e t e and i n S a s k a t c h e w a n and r e f e r r e d t o as Commissioner System." reality States: i n Canada formal break be- administration. Some c i t i e s what can attempt United the The A l b e r t a have "Council-Single s i n g l e appointed chief administrative responsible f o r administering work o f t h e civic officer, the developed Appointed commissioner and is primarily budget, c o - o r d i n a t i n g d e p a r t m e n t s , and is in a d v i s i n g the council the on matters of o v e r - a l l p o l i c y . The C o u n c i l - C i t y Commissioner System. government o r g a n i z a t i o n western provinces this by the ver i s no longer a The Board-of-Control i n the divides the control. sibility Alberta. mayor i n those a l s o been adopted i n the However, t h e Form. The City mayor i n V a n c o u - board-of-control i n Ontario. Toronto area. and This I t has system of administrative elected bodies—the former, while form of civic been w i d e l y esta- civic government functions c o u n c i l and L e g i s l a t i o n , or p o l i c y formulation, of the The two commissioner. legislative separately I t has Columbia. government i s f o u n d o n l y blished municipal a commissioner i n a d d i t i o n to council. of Vancouver, B r i t i s h form of almost e x c l u s i v e l y i n the o f S a s k a t c h e w a n and system i s e x - o f f i c i o appointed two occurs This administration the board-of- i s the i s the between responresponsi- 23 billty of the l a t t e r . 13 M e t r o p o l i t a n growth has r e s u l t e d i n l a r g e - s c a l e a d j u s t ments i n e x i s t i n g local many new l o c a l u n i t s . for g o v e r n m e n t s and i n t h e c r e a t i o n o f However, t h e m e t r o p o l i t a n t r a n s p o r t a t i o n , housing, sprawl, and so f o r t h , public support strative (3) f o r these and p o l i t i c a l i s a metropoli- ( l ) t o s e t up p o l i c i e s policies; and s t i m u l a t e (2) t o r e c o n c i l e d i f f e r e n c e s when t h e r e t o c o n t r o l and r e g u l a t e p r i v a t e p r o p e r t y ; assume new r e s p o n s i b i l i t i e s needs open s p a c e , c o n t r o l o f urban c a n o n l y be met i f t h e r e t a n government e q u i p p e d : area's admini- i s controversy; a n d , (4) t o t h a t r e q u i r e a c t i o n on an a r e a - wide b a s i s . What i s n e e d e d i s a f o r m o f r e g i o n a l o r m e t r o p o l i t a n multipurpose with government which i s e q u i p p e d t o d e a l n o t o n l y a d m i n i s t r a t i v e problems, but a l s o with policy-making and enforcing. As to the present zations, four distinct first ment. f o rtraditional trates T h i s approach (2) A n o t h e r a p p r o a c h on t h e needs and purposes o f a p a r t i c u l a r s u c h as h e a l t h , e d u c a t i o n , or recreation. pp. 1 4 - 5 5 . called concen- activity, I t tends t o minimize \ P l u n k e t t , op_. c i t . . govern- measures i n t e r m s o f t h e i r governments. approach. organi- ( l ) The the e x i s t i n g p a t t e r n of l o c a l I t examines t h e a d a p t i v e "jurisdictional" metropolitan a p p r o a c h e s may be d i s c e r n e d : approach emphasizes significance the methods i n f o r m i n g 24 traditional governments, program areas, t o the tions. This of the third ments and needs of t r i c t s are regarded to on the very out area. This such local as ( 3 ) The consideratendency on govern- the governmental governments and special to progress. This (4) A t t e n t i o n government, the needs recent with or of available the needs of tendency called may the The dis- be focused individual region f o r adapting as a not on functions whole, local the but government years, attempts to re-organize metropolitan problems have local been along lines: Inter-governmental worked a l lo t h e r special- 14 to deal following of "methods" needs. respect i n of emphasized. And, pattern U n t i l with of approach. obstacles are approach. government concentrate i n favor Existing government changing the functions as performed, or rather to exclusion "functional" region. existing be tends approach i s to minimize both traditional the "regional" to v i r t u a l individual area-wide the i s the and to Arrangements. certain between local usually water, by governments. public central Such services, government involves the Co-operative the units sale city have of t o one arrangements arrangements frequently i n a been metropolitan a particular o r more are f a i r l y service, suburban easy to im- R o s c o e C. M a r t i n , M e t r o p o l i s • i n T r a n s i t i o n (Washington, D. C. : T h e U . S . H o u s i n g a n d H o m e F i n a n c e Agency, S e p t e m b e r , 1 9 6 3 ) , p . 2. 25 plement s i n c e they government, do n o t r e q u i r e a n y change i n t h e l o c a l structure. Special-Purpose Authorities. These a r e u s u a l l y s e p a r a t e i n - dependent u n i t s e s t a b l i s h e d t o p r o v i d e a number o f l o c a l governments. a specific T h i s d e r v i c e has r e c e i v e d siderable p o p u l a r i t y i n metropolitan areas. legal simplicity of their their proliferation considerable Annexation amount o f p o l i t i c a l Many o f t h e l a r g e r of annexation. city city, cities Annexation has r e s u l t e d achieved contiguous t h e i r present cial While annexation fringe size area is still b y way are and s t a b l e l o c a l phery of the c e n t r a l relafinan- i t i s no l o n g e r i n the l a r g e m e t r o p o l i t a n areas well-entrenched or a p o s s i b l e , and p r o - considered feasible where there g o v e r n m e n t s on t h e p e r i - / city. Separation and C o n s o l i d a t i o n . I n Canada, a f o r m o f government e x i s t s i n the provinces O n t a r i o , a n d Nova S c o t i a , and i s e s s e n t i a l l y a r u r a l an r t h a t was e x p e r i e n c i n g d e s i r a b l e i n the s m a l l e r urban areas, government. to i t ; I n some i n s t a n c e s , i t was a m a t t e r o f t h e government u n i t City-County in a i n v o l v e s the absorp- of territories t i v e l y weak l o c a l bably The p o l i t i c a l a n d and a d m i n i s t r a t i v e c o n f u s i o n . annexing an u n i n c o r p o r a t e d difficulty. con- h a s , however, l e d t o i n many a r e a s , and t h i s t i o n , 'by t h e c e n t r a l central establishment or Consolidation. service to county- o f A l b e r t a , Quebec, I n t h e U n i t e d S t a t e s , where t h e c o u n t y form of system i s i n t e g r a l p a r t o f t h e g o v e r n m e n t a l f r a m e w o r k o f most states, 26 it has with t o some e x t e n t metropolitan metropolitan b e e n u t i l i z e d , as problems. area i t has an agency f o r d e a l i n g T h u s , where a c o u n t y embraces o f t e n been g i v e n r e s p o n s i b i l i t y a for — IS area-wide urban s e r v i c e s . While some o f t h e s e approaches to m e t r o p o l i t a n ment o r g a n i z a t i o n have r e l i e v e d furnished involved o f the a satisfactory i n the solution metropolis continues t o be an Governmental ad-hoc b a s i s w h i l e developments proceed its rapidly. metropolis decide than faces and the web The organically rather to polithan g r a d u a l l y and somehow t h e economic system, l a c k of a sense of despite direction, More f a v o r a b l e t o d e f e n d e r s to innovators, the p o l i t i c a l l o n g h a u l ahead. Only the on system of future of the will its fate. ^ 1 III. L o c a l and There are cities But The i n response industrialization. place have problems a whole. t e c h n o l o g i c a l , and s i g n s of succumbing. status-quo as fashioned, changes t a k e social, seeming i r r a t i o n a l i t y shows no the area s y s t e m embodied i n i t e v o l v e s rationally. p r o b l e m s , non t o the m a n i f o l d development o f the t h e f o r c e s o f u r b a n i z a t i o n and tical specific govern- Metropolitan Planning reliable records whose s t r e e t s were l a i d ' P l u n k e t t , op_. Bollens and cit., of Egyptian out pp. on Function and the f a m i l i a r 82-83. Schmandt, op_. cit.. p. 212. Mesopotamian rectangular 27 p a t t e r n even over f i v e thousand years o f modern p l a n n i n g movement a r e f o u n d living which accompanied the r a p i d half of the n i n e t e e n t h / c e n t u r y . this movement was In the drawn f r o m e a r l y p a r t of t h i s n i n g was on the T h e s e were d e a l t was until on not the beings the the century, "city practical". populate Not v e r y many y e a r s World P a i r I t s e m p h a s i s was streets and ago, L plan- almost throughIt i t s emphasis the visions t h e mere m e n t i o n o f t h e o f government human word regimentation, infringement of private B u s i n e s s m e n , as w e l l as who civic rights. exists Al- today, o p e r a t o r s and builders, come t o a c c e p t the f a c t t h a t land-use cannot entirely to the left ' R o b e r t A. Government ( S e c o n d P r e s s , 1951), p. reformers of p l a n n i n g . were o r i g i n a l l y most h o s t i l e as r e a l - e s t a t e be and t h a t c i t y p l a n n i n g put n e w s p a p e r s , have become s t r o n g a d v o c a t e s such J i s g e n e r a l l y r e c o g n i z e d as a l e g i t i m a t e f u n c t i o n government. the people 18'93 ." ^ the emphasis i n c i t y t h o u g h r e s i s t e n c e t o community p l a n n i n g s t i l l of of community. " p l a n n i n g " c o n j u r e d up the process latter inspiration for T o d a y , t h e e m p h a s i s i s on who creeping socialism, u r b a n i z a t i o n i n the and roots c h a n g e d mode o f w i t h as a r c h i t e c t u r a l p r o b l e m s . twenties a i n the Chicago centers, parks, fares. However, t h e Much o f t h e "city beautiful". w h o l l y upon c i v i c ago. t o the have expansion discretion and Even concept, reluctantly and development o f the market and W a l k e r , The P l a n n i n g F u n c t i o n i n U r b a n e d i t i o n ; . C h i c a g o : The U n i v e r s i t y o f C h i c a g o 12. 28 the ingenuity of i t s participants, i responsible culation of rational t h e u n d e r l y i n g p r o b l e m s become attack unless there analysis, planning, Although times Medieval, Renaissance, of city i sa single t o the Egyptian, planning center impossible for co- and a c t i o n . community p l a n n i n g primitive era The r e c o g n i t i o n i s t h a t when i t l a n d u s e r e g u l a t i o n , arid, t h e s y s t e m o f c i r - and t r a f f i c , ordinated ft public control. comes t o z o n i n g , b u t must be s u b j e c t t o and other c a n be t r a c e d b a c k Chinese, I n d i a n , Greek, historical i n the United States from periods, Roman, t h e modern began w i t h t h e 19 passage Zoning of the f i r s t comprehensive i sto a certain extent common l a w o f n u i s a n c e s , no person should that would however, those division purpose i n than t o use his property t o others. I n the United interested i nplanning nuisance land-use 1909* an outgrowth o f t h e ancient control--namely, States, saw i n z o n i n g that the concept limited planning merely t o streets, zoning, and e t c . , w i l l give and subbroader the implementation p a t t e r n f o r t h e community. seems i n e v i t a b l e that i n a n y way c o n t r o l t o o l s f o r t h e a c h i e v e m e n t o f a much rational, these ordinance which r e s t s upon t h e p r i n c i p l e be p e r m i t t e d cause i n j u r y zoning of city of a However, i t planning, which had parks, transportation, way t o a c o n c e p t w h i c h w i l l f u n c t i o n s a s w e l l a s t h e more r e c e n t include a d d i t i o n s t o muni- 18 B o l l e n s a n d S c h m a n d t , op_. p i t . . p . 2 7 5 . 19 ^ M e l v i l l e C. B r a n c h , P l a n n i n g : A s p e c t s a n d A p p l i c a t i o n s (New Y o r k , L o n d o n , S y d n e y : J o h n W i l e y a n d S o n s , I n c . , 1 9 6 6 ) , p. 14. 1 29 c i p a l s e r v i c e s , s u c h as u r b a n r e n e w a l , housing, argument i s t h a t the l o c a l p l a n n i n g p r o c e s s the process of l o c a l government. the f u t u r e , determining b e s t and etc. i s an a s p e c t of I t i s government l o o k i n g t o d e s i r a b l e o b j e c t i v e s , and most e c o n o m i c a l The seeking means f o r a c h i e v i n g them. There are three d i f f e r e n t concepts the 20 of the r o l e of city planning: An I n d e p e n d e n t A c t i v i t y o f t h e This concept holds and Commission. t h a t c i t y p l a n n i n g s h o u l d be independent i n s u l a t e d f r o m t h e m a i n s t r e a m o f p o l i t i c a l and strative affairs. be City Planning the citizen The body i n charge o f c i t y p l a n n i n g This p l a n n i n g d i r e c t o r as a s t a f f a i d \ t o t h e concept regards the chief executive, and t h e p l a n n i n g c o m m i s s i o n a s an a s s i s t i n g and the p l a n n i n g d i r e c t o r . public-administration advisory board T h i s c o n c e p t i s a c t u a l l y an c e n t r a l - m a n a g e m e n t i d e a , and to outgrowth i s i n c o r p o r a t e d i n most texts. A P o l i c y - M a k i n g A c t i v i t y of the cept holds should commission. A S t a f f A i d t o the Chief E x e c u t i v e . of the admini'-_"> City Council. The t h a t the c i t y c o u n c i l i s the p r i m a r y third con- c l i e n t of c i t y p l a n n i n g agency because i t i s the f i n a l policy-making a u t h o r i t y i n m u n i c i p a l government. planning The commission i s a d v i s o r y to the c o u n c i l . W a l k e r , op_. c i t . . p . 129. city The city planning the 30 director presents commission In often the areas the density to the city of development of a any staff of of and growth, the take into larger i n responsible economic of order social resources, plan essential but high f o r require function f o r matters, as a an region. insthe administration such Within as location, characteristics, a l l require i s population the i n t e l l i g e n t l y , economic of planning p o l i t i c i a n a c t i v i t i e s and consideration i t s position and of the planning process, and to c i t y professional planners. planning geographical only regions development well-equipped allocation Therefore, a the density, regional interests, comprehensive size, not of urban of 21 population However, complex t i t u t i o n a l i z a t i o n council. low planners and recommendations to amenities be considered. community integral Regional increasing importance must part of a planning i n view of i s the 22 emergence In the urban of the of objectives. i t s own of the areas. well-developed are plans emerging and community, problems, i n of that local Each people the does not today policies i n metropolitan are designed seeking an larger metropolitan a area. plans, random to meet optimum n e c e s s a r i l y work T. J . K e n t , J r . , The Urban General Chandler P u b l i s h i n g Company, 1964), pp. 2 1 co: absence patterns collection to metropolitan i n local solution the Por interests example, P l a n (San 12-16. Francis- 22 Vandiver, " U r b a n i z a t i o n and U r b a n i s m , " The M e t r o p o l i s . F. J . T i e t z e and J . E. McKeown, e d i t o r s Houghton M i f f l i n Company, 1964), p. 31. Changing (Boston: 31 many s u b - u r b a n m u n i c i p a l i t i e s have c h o s e n t o p r o m o t e t h e development o f s i n g l e - f a m i l y h o u s e s on l a r g e l o t s of f o r e s t a l l i n g c o s t l y I n v e s t m e n t s i n new u t i l i t y When a l a r g e number o f c o m m u n i t i e s p l a n n e d development i n this been t o f o r c e a v a s t of metropolitan utility long i n an area systems. limit way, t h e n e t r e s u l t their has o f t e n o u t w a r d movement o f p e o p l e areas, as a means to the f r i n g e s c r e a t i n g a n e e d f o r new and e x p e n s i v e s y s t e m s i n t h e p e r i p h e r a l c o m m u n i t i e s , and f o r c i n g commuting t r i p s development that to the c e n t r a l c i t i e s . A pattern of i s e c o n o m i c a l f o r many s u b u r b s c a n be very 2^ c o s t l y f o r the metropolitan The bodies formal area and t h e n a t i o n a t l a r g e . relationship of metropolitan to the l o c a l u n i t s varies widely. J planning A t one e n d o f t h e c o n t i n u u m a r e t h e a g e n c i e s w h i c h a r e e s t a b l i s h e d and f i n a n c e d by p r i v a t e o r g a n i z a t i o n s have no o f f i c i a l the citizenry planning category the i n t e r e s t s of o f land use p l a n s , concerning Plan i n this i n metropolitan-wide preparation and p u b l i c i t y Planning Those to stimulate governments through research, the problems o f the A s s o c i a t i o n and P i t t s b u r g h i n this field. At the other which a r e c o n s t i t u e n t p a r t s end a r e of a general metro- o r a r e a - w i d e g o v e r n m e n t i n much t h e same way t h a t 'Bollens eco- A s s o c i a t i o n a r e two o f t h e b e t t e r known organizations those agencies politan except The New Y o r k R e g i o n a l Regional private standing and l o c a l nomic a n a l y s e s , area. and g r o u p s . a n d Schmandt, op_. c i t . , p . 2 9 6 . city 32 p l a n n i n g commissions are governments. The component u n i t s o f t h e i r municipal M e t r o p o l i t a n T o r o n t o P l a n n i n g B o a r d and the P l a n n i n g D e p a r t m e n t o f M e t r o p o l i t a n Dade C o u n t y , F l o r i d a , fall into this classification. Between these two extreme the m a j o r i t y of m e t r o p o l i t a n or r e g i o n a l p l a n n i n g bodies are with 24 v a r i e d degrees of r e l a t i o n s h i p to t h e i r l o c a l The type units. of area-wide p l a n n i n g agency t h a t i s c u r r e n t l y b e c o m i n g more p o p u l a r i s t h e m e t r o p o l i t a n o r r e g i o n a l commi- s s i o n s e r v i n g a m u l t i p l i c i t y of governments throughout urban complex. These a g e n c i e s the l o c a l u n i t s although ed by h a v e no organic relationship t h e i r b o a r d m e m b e r s h i p may the p a r t i c i p a t i n g governments. an The be Northeastern to appointIlli- n o i s M e t r o p o l i t a n Area P l a n n i n g Commission i s a prominent 2B example o f t h i s In ners 1962, type. ^ a committee of the American I n s t i t u t e of i s s u e d a s t a t e m e n t on t h e r o l e o f m e t r o p o l i t a n planning t h a t i s of considerable s i g n i f i c a n c e since i t expressed c o n s e n s u s o f p r o f e s s i o n a l s on a r e l a t i v e l y new l o c a l government f i e l d . The Plan- the a c t i v i t y i n the committee o u t l i n e d the nature o b j e c t i v e s of m e t r o p o l i t a n p l a n n i n g i n the f o l l o w i n g terms: The m e t r o p o l i t a n p l a n n i n g a g e n c y s h o u l d s e e k t h e development of a u n i f i e d p l a n f o r l a n d use, d e n s i t y and d e s i g n , t h e p r o v i s i o n a n d c o r r e l a t i o n o f p u b l i c f a c i l i t i e s , s e r v i c e s and u t i l i t i e s , a n d t h e p r e s e r v a t i o n o f o p e n s p a c e and w i s e u s e o f n a t u r a l r e sources. I t should s t r i v e to co-ordinate l o c a l I b i d . , p. 2 5 Ibid. 302. and 33 p l a n n i n g , b o t h p u b l i c and p r i v a t e , w i t h p l a n n i n g a t the m e t r o p o l i t a n l e v e l ; s i m i l a r l y , the m e t r o p o l i t a n p l a n s h o u l d be c o - o r d i n a t e d w i t h s t a t e and n a t i o n a l p l a n s — p a r t i c u l a r l y those a f f e c t i n g t r a n s p o r t a t i o n , p u b l i c f a c i l i t i e s and n a t u r a l r e s o u r c e p r o g r a m s and f u n c t i o n s t h a t are m e t r o p o l i t a n i n scope. To t h i s p u r p o s e , t h e r e s h o u l d be a l e g a l r e q u i r e m e n t t h a t the agency r e v i e w the c o n t e n t c o n f o r m i t y o r compatib i l i t y of a l l p r o p o s a l s a f f e c t i n g the m e t r o p o l i t a n area. . . . . The m e t r o p o l i t a n p l a n n i n g a g e n c y s h o u l d s e e k e s t a b l i s h m e n t and a c c e p t a n c e o f g o a l s , b o t h . l o n g r a n g e and i m m e d i a t e , f o r t h e m e t r o p o l i t a n a r e a ' s p h y s i c a l d e v e l o p m e n t ( w i t h due r e g a r d t o e c o n o m i c and s o c i a l f a c t o r s ) . T h e s e g o a l s s h o u l d be t h e b a s i s f o r the f o r m u l a t i o n o f the comprehenisve met r o p o l i t a n area p l a n — a n d that plan, i n turn, should s e r v e as a f r a m e w o r k w i t h i n w h i c h may be c o - o r d i n a t e d the comprehensive p l a n s of m u n i c i p a l i t i e s , c o u n t i e s and o t h e r u n i t s o f government i n t h e m e t r o p o l i t a n area. " 2 The n i n g are most d e s i r a b l e a r r a n g e m e n t s f o r m e t r o p o l i t a n i n t h e few cases where t h e r e s p o n s i b l e a g e n c y i s i n t e g r a l p a r t o f an a r e a - w i d e g o v e r n m e n t . p l a n n i n g f u n c t i o n can more e a s i l y be and decision-making has o p e r a t i o n a l powers. processes IV. I n 1938, ture of C i t i e s , " the f a c t litan o f an tied In such into the cases, an the programs o n - g o i n g p u b l i c body t h a t Conclusions L e w i s Mumford i n h i s b r i l l i a n t s t a t e d t h a t he t h a t i t was plan- the could not and study "The would n o t Cul- escape c i t y w h i c h gave a r e g i o n i t s c u l t u r a l A m e r i c a n I n s t i t u t e o f P l a n n e r s , The R o l e o f M e t r o p o P l a n n i n g (Chicago: American I n s t i t u t e of P l a n n e r s , 1 9 6 2 ) , PpTT-5. 34 vitality. 2 7' L a t e r , L o u i s W i r t h proposed t h a t the metropolitan 28 r e g i o n s h o u l d be The w i t h e c o n o m i c , s o c i a l , and Firstly, l i t a n a r e a has its unit. m e t r o p o l i t a n r e g i o n i s m a n y - f a c e t e d and dimensional dencies. a planning multi- government i n t e r d e p e n - , t h e c o n d i t i o n o f t h e economy o f a m e t r o p o - a d i r e c t and m a j o r b e a r i n g on t h e a b i l i t y governments t o f i n a n c e t h e i r o p e r a t i o n s and, governments of the area through i n t u r n , the t h e i r s e r v i c e s and a f f e c t t h e p r o s p e r i t y o f i t s economy. Secondly, controls work speciali- z a t i o n p r o d u c e s a l a b o r f o r c e o f many d i v e r s i f i e d t y p e s , b r i n g i n g t o t h e m e t r o p o l i s new s o c i a l v a l u e s and of c e n t r a l c i t i e s c h a n g e s I n t h e a t t i t u d e s and p o s i t i o n s o f b o t h and s u b u r b a n p u b l i c o f f i c i a l s and political thus expectations a s w e l l a s b r o a d e n e d demands u p o n i t s g o v e r n m e n t s . the s h i f t i n g s o c i a l composition of Thirdly, o f t e n causes central leaders. city This i s f r e q u e n t l y e v i d e n t on a v a r i e t y o f i s s u e s , i n c l u d i n g p l a n s m e t r o p o l i t a n government r e - o r g a n i z a t i o n . M o s t o f us d e s i r e e f f i c i e n t for 29 l o c a l government, but means more t h a n a d m i n i s t r a t i v e c o m p e t e n c e . What we this really ^ J o h n F r i e d m a n n , "The C o n c e p t o f a P l a n n i n g R e g i o n The E v o l u t i o n o f an I d e a i n t h e U n i t e d S t a t e s " , R e g i o n a l Devel o p m e n t a n d P l a n n i n g . J o h n F r i e d m a n n and W i l l i a m A l o n s o , e d i t o r s ( C a m b r i d g e : The M. I . T. P r e s s , 1 9 6 4 ) , p . 506. p Q L o u i s W i r t h , . "The M e t r o p o l i t a n R e g i o n as a P l a n n i n g U n i t " , N a t i o n a l C o n f e r e n c e on P l a n n i n g , P r o c e e d i n g s o f t h e C o n f e r e n c e h e l d a t I n d i a n a p o l i s , I n d i a n a , May 2 5 - 2 7 , 1942 (Chicago: ASPO, 1 9 4 2 ) . PQ - ^ B o l l e n s and S c h m a n d t , op_. c i t . . p. 30« 35 desire is local ponds t o the government e f f i c i e n t community's n e e d s and p e r m i t s maximum p a r t i c i p a t i o n o f and it c o n t r o l of administers i n the sense affairs, and local undertakings i t res- i t s aspirations, that i t i t s citizens local that i n the d i r e c t i o n that, within this economically and framework, with com- 30 petence. local However, i t i s most d o u b t f u l ( that d e m o c r a c y i s a d v a n c e d by p e r m i t t i n g the cause of a system that c o u r a g e s s u b o r d i n a t e a u t h o r i t i e s t o t h w a r t and impede en-- one another. The structure both B r i t i s h British has basis council-committee i n w i d e s p r e a d use relatively small government shows With i t s r o o t s form of i n Canada. local The c o u n c i l s e l e c t e d on a in the government tendency to non-partisan more c l e a r l y r e s u l t s f r o m N o r t h A m e r i c a n t r a d i t i o n s . While the almost u n i v e r s a l Canadian p r a c t i c e of e l e c t i n g mayor s e p a r a t e l y may tional of tradition s l a t i v e powers, the assigned any counterparts, real luctance, derive from the United fact that authority, i n contrast to t h e i r be noted, i s e n t i r e l y concept of r e s p o n s i b l e Plunkett, op_. and American Such 8. the re- i n accordance government a d h e r e d t o by c i t . , p. legi- been to provide of powers. the constitu- C a n a d i a n mayors have n o t genuine s e p a r a t i o n i t should States' d i s t i n g u i s h i n g between e x e c u t i v e seems t o i n d i c a t e a r e l u c t a n c e s u b s t a n c e f o r any the Canadian municipal American i n f l u e n c e . system, the continued fostor and of most with 36 Commonwealth C o u n t r i e s . the various politan units of local existence era t h a t was of a v a r i e t y of ment u n i t s and long before the advent of inadequate l o c a l authorities within decisive c o n t r o l o v e r the the of metrothe primarily rural-oriented. out-moded and special-purpose none o f w h i c h has p o l i t i c a l boundaries government f o u n d i n C a n a d i a n a r e a s were e s t a b l i s h e d a u t o m o b i l e , i n an lis, However, t h e The govern- metropo- a r e a as a 31 w h o l e , makes a m a j o r c o n t r i b u t i o n Tools only are f o r planning they s c a t t e r e d urban a r e a s , but enabling vital all and t o o l s r e s u l t s not of the a lack of palities within powers. The the statutes. only o r g a n i z e d on I b i d . . pp. units within on since r e - i n f o r c e d by of our of of r e g i o n a l s c a l e , as every not a l l the local autonomy objectives. In municisame govern- large extensive necessary sub- that c o m m u n i t i e s may sufficiently i f municipali- s c a t t e r i n g of system of them t o u n d e r t a k e t h e 69-80. the local local the co-ordination, conferred out Not s c a t t e r i n g of i n a lack of a geographic basis to allow scattered. among d i f f e r e n t This consistency, problem. same a r e a w i l l u s u a l l y p o s s e s s t h e attainment p r o b l e m i s one strategic scattered s y s t e m assumes a d e g r e e o f impedes t h a t the also limitations arising s t a n t i v e power a r e ment; t h e among many m u n i c i p a l a v a i l a b l e powers a r e t y ; '/'but a l s o metropolitan implementation are they are authorizing to the not part be or planning 37 and development d e c i s i o n s . 32 P l a n n i n g and d e v e l o p m e n t o f t h e p h y s i c a l , e c o n o m i c , a n d social e n v i r o n m e n t a r e among t h e most tasks' ' o f g o v e r n m e n t . l i n k e d , h e n c e : two d i s t i n c t but r e l a t e d must be d e a l t w i t h : on t h e one h a n d , s o c i a l questions concerning sets of issues and p h y s i c a l t h e p l a n n i n g and d e v e l o p m e n t o f c i t i e s ; on t h e o t h e r h a n d , t h e e c o n o m i c nection with and d i f f i c u l t U r b a n i z a t i o n and i n d u s t r i a l i z a t i o n a r e 1 closely complex questions industrialization. arising i n con-: T h e s e two s e t s o f p r o b l e m s 33 s h o u l d meet and be r e s o l v e d i n u r b a n i z a t i o n p o l i c y . The p o l i t i c a l and a d m i n i s t r a t i v e machinery and t h e p r o - cedures used a t the various l e v e l s the character of the p o l i c y , intended J o f government the q u a l i t y t o embody t h e p o l i c y , will of plans affect which are and t h e e f f e c t i v e n e s s o f t h e i r realization. M e t r o p o l i t a n o r r e g i o n a l p l a n n i n g i s ; a t t h e same t o d a y t h a t c i t y p l a n n i n g was a b o u t f i f t y winning r e c o g n i t i o n but i t s t i l l stream o f l o c a l government wide p l a n n i n g a g e n c i e s current ferment i n t h i s the establishment years ago. I ti s remains o u t s i d e the main- life. The g r o w i n g number o f a r e a - f u r n i s h e s t a n g i b l e evidence field. stage of the So does t h e movement t o w a r d of metropolitan councils of public officials, D a n i e l R. M a n d e l k e r , "A L e g a l S t r a t e g y f o r U r b a n D e v e l o p m e n t " , P l a n n i n g f o r a N a t i o n o f C i t i e s , Sam B a s s Warner, e d i t o r ( C a m b r i d g e : The M. I . T. P r e s s , 1 9 6 6 ) , p . 2 1 1 . 3 33 -^Vandiver, op_. c i t . . p. 30. 38 a movement t h a t g i v e s p r o m i s e o f p r o v i d i n g an mechanism, i m p e r f e c t the executing offer as i t may agencies. This be, f o r r e l a t i n g planning latter t h e most a d v a n c e d s o l u t i o n institutional d e v e l o p m e n t may t h a t c a n be to well expected in im- 34 proving the governmental processes However, t h e resolved, mainly jurisdictions able of m e t r o p o l i t a n metropolis. planning because of the r e l u c t a n c e of t o g i v e up difficulties operate role of the any existing yet different a u t h o r i t y , the of i n t e g r a t i n g a c t i v i t i e s s e p a r a t e l y , and i s not inevit- organized the presence o f d i f f e r e n t to local i n - terests . Planning tion requires p o l i t i c a l to a r t i c u l a t e support. planning arises community n e e d s and It is precisely in this t h e more i m m e d i a t e pies the m a j o r i t y of a p o l i t i c a l decision-making action,the p o l i t i c i a n w i l l planning its also on validity that before efficiency and plan objectives which occu- If planning o b j e c t i v e with concrete political support the p l a n n i n g at each l e v e l Schmandt, op_. difficulty time. planning can exist f u n c t i o n must o f government, a t each f u n c t i o n a l o p e r a t i o n w i t h i n the Bollens posi- rally public activity leader's in a metropolitan l o s e I n t e r e s t i n the a regional level, and and Part of t h i s c o n t r i b u t e t o h i s immediate Therefore, are c o r r e l a t i o n of long-term with function. goals respect i s s e r i o u s l y handicapped. from a l a c k of does n o t l e a d e r s who c i t . , p. various 303. for prove and levels of 39 35 government. ^ Duties pulation, factors and and authorities financial are balanced tisfaction be V. The pate resources. The effectively from t h e i r the demands c r e a t e s a gap t o be confidence power i n t u r n Although cussion, The to poli- partici- S u c h l a c k o f power in-ability between e x p e c t a t i o n s and t o meet their ful- i n the p l a n n i n g agency i s l o s t , i t s decreases. traditional l e a d e r s h i p , and I f the m e t r o p o l i s will sa- metropo- lack of or f a i l u r e taken. re-inforcing. meeting l o c a l problems, they it community t o many e x i s t i n g in-ability when d e c i s i o n s a r e i n f l u e n c e tend text. will stems l a r g e l y f r o m t h e i r and nication, level, these C r i t e r i a f o r T e s t i n g Purposes i n - e f f e c t i v e n e s s charged as when a l l o f po- maximized. m u s c l e and fillment; appropriate to area, Only a t the h i g h e s t l i t a n planning agencies tical must be local governments a r e u s e f u l i n c a n n o t meet t h e p r o b l e m s o f e x p r e s s i o n i n the m e t r o p o l i t a n i s to reach have t o c r e a t e i n s t i t u t i o n s common d e c i s i o n - m a k i n g and i t s greatest through commucon- possibilities, w h i c h common dis- common a d m i n i s t r a t i o n a r e - ^ V i n c e n t J . Moore, "The S t r u c t u r e o f P l a n n i n g and R e g i o n a l D e v e l o p m e n t , " E m e r g i n g C i t i e s o f A m e r i c a . Government R e l a t i o n s and P l a n n i n g - P o l i c y C o n f e r e n c e , J a n u a r y 22-24, 1965 ( W a s h i n g t o n , D. C. : A I P ) , p . 4. 40 facilitated. Large questionably services, 3 6 s c a l e , metropolitan-wide appropriate but i t i s not z a t i o n f o r the metropolis. politan t h e most a p p r o p r i a t e "metropolitan" There are ments have v i t a l i n these f o r a l i m i t e d number o f p u b l i c I t i s b e l i e v e d that there governments. two reasons r o l e s they should be those ning of l o c a l can focus impact without cern. on p r o b l e m s and interfering be a division (1) conserved; and, so "local" local govern- citizens (2) significance. a metroassigned 3 7 distinctions planning i s s u e s of g r e a t e r than can and that metropolitan plan- local with matters of p u r e l y l o c a l that continued con- progress C a s s e l l a , "Objectives of M e t r o p o l i t a n N a t i o n a l C i v i c R e v i e w , V o l . X L V T I I , No. 29. Ibid. - ^ T h e J o i n t Center f o r Urban S t u d i e s of the Massachus e t t s I n s t i t u t e o f T e c h n o l o g y and H a r v a r d U n i v e r s i t y , The E f f e c t i v e n e s s o f M e t r o p o l i t a n P l a n n i n g ( W a s h i n g t o n , D.. C.: U. S. Government P r i n t i n g O f f i c e , June 3 0 , 1 9 6 4 ) , p . 115. 3 of the of t h e i r concerns of m e t r o p o l i t a n community p l a n n i n g , W i l l i a m N. Government L i s t e d " , (January, 1 9 5 9 ) , p. 3 lives that reasonable However, i t i s a l s o c l e a r 3 7 organi- only undertake s p e c i f i c a l l y i s also recognized drawn b e t w e e n t h e should for this: governmental f u n c t i o n s of m e t r o p o l i t a n be s c a l e of government and r o l e s to p l a y i n the government s h o u l d It un- p r o v i s i o n of a l l p u b l i c services required i n a f u n c t i o n s between the and organization i s 1 41 will require a co-ordinated metropolitan It ate the planning and i s important metropolitan metropolitan areas hypothesis. The and from local of Canada, and Committee of the tion i n M e t r o p o l i t a n Areas, 1962 by mental R e l a t i o n s . t i o n s must be k i n d , as of the (2) some o f for some o f t h e ing c o n t r a d i c t o r y values to criteria Role criteria Re-organiza- two in different which the limitathis methodology tendencies and compatible, Balance is general-purpose necessary, criteria reflectare Metropolitan r a t h e r than government s h o u l d single-purpose be organized government. ment o f f u n c t i o n s t o g e n e r a l p u r p o s e g o v e r n m e n t i s more to produce a proper tical a only secure. Criterion I. sources, likebut directions, different in Intergovern- criteria, are of Planners, (1) an a p p r a i s a l o f maximized. pull of C o m m i s s i o n on suggest the Metropolitan s u b j e c t m a t t e r and only the of Commission R e p o r t " p r e p a r e d recognized: each i s moderated, not presumed A evalu- selected "The to Governmental Advisory s c i e n c e s , can the American I n s t i t u t e a p p r a i s a l i n the and, by However, i n a p p l y i n g clearly social lihoods; if any to the v a l i d i t y d e r i v e d from i n 1962 " A l t e r n a t i v e Approaches States to prove are mainly prepared of planning. government a u t h o r i t i e s o f t h r e e criteria the U n i t e d concerns h e r e t o p r o p o s e some c r i t e r i a Metropolitan Planning" Conference a p p r o a c h between t h e b a l a n c i n g of total condition for effective responsibility. It is likely l o c a l n e e d s and decision-making t o p r o d u c e more and as Assignlikely repoli- efficient 42 administration and through b e t t e r c o - o r d i n a t i o n among f u n c t i o n s the r e d u c t i o n o f overhead costs. c o n t r o l by e n a b l i n g the c i t i z e n diffuse with h i s a t t e n t i o n on t h o s e to concentrate, Broad for criterion y s c o p e f o r m e t r o p o l i t a n government i s i m p o r t a n t sufficient services, Government s h o u l d When a government i t can not o n l y balance have u n d e r I t s a e g i s one w i t h a n o t h e r , present but i t can a l s o p l a n f o r the responsibility enough o f t h e s e r v i c e s t o c o n s i d e r them a s a t o t a l to balance than t h e o v e r l a p p i n g among u n i t s o f g o v e r n m e n t . needs a n d a s s i g n p r i o r i t i e s , future. rather Adherence t o t h i s b e c a u s e s e r v i c e s depend u p o n one a n o t h e r . controls citizen o r g a n i z a t i o n s and o f f i c i a l s t h e power t o make d e c i s i o n s . means m i n i m i z i n g I t can sharpen to assign p r i o r i t i e s , package always > 40 taking into The consideration values metropolitan ship. Criterion should government s h o u l d Therefore, p o l i t a n area II. o f sub-areas a general-purpose serve and groups. as a f o c u s of leader- government f o r t h e m e t r o - i s highly desirable. The u n i t have t h e l e g a l o f government p e r f o r m i n g and a d m i n i s t r a t i v e a b i l i t y a function to perform 39 - ^ A d v i s o r y C o m m i s s i o n on I n t e r g o v e r n m e n t a l R e l a t i o n s , A l t e r n a t i v e A p p r o a c h e s t o G o v e r n m e n t a l R e o r g a n i z a t i o n i n Metrop o l i t a n A r e a s , A Commission R e p o r t ( W a s h i n g t o n . D. C. : U. S. Government P r i n t i n g O f f i c e , J u n e , 1 9 6 2 ) , p . 1 3 . 40 - • , P e r f o r m a n c e o f ..Urban F u n c t i o n s : L o c a l and A r e a - w i d e ( W a s h i n g t o n . D. C. U. S. Government P r i n t i n g O f f i c e , 'September, 1 9 6 3 ) , p . 5 6 . 43 the services legal authority service, the that and to to to the s h o u l d be service to Criterion III. Government needs s u f f i c i e n t o r an cope a d e q u a t e l y w i t h t h e be large enough t o e n a b l e performance of within functions government s h o u l d r e m a i n c o n t r o l l a b l e by and of that for the a create handle. j u r i s d i c t i o n responsible consumed p r i m a r i l y The aspect forces c i t i z e n s expect i t to governmental service 41 i t . undertake a s e r v i c e problems which the fore, any assigned Thereproviding benefits from the j u r i s d i c t i o n . by a unit of accessible to i t s 42 residents. are determined little to a relationship factors the A c c e s s i b i l i t y and include manner o f terms, the to the many control c i t i z e n of a number and from vested and pressures, ^ 4 3 the government. nature of (by district elective or at a c c e s s i b i l i t y may as well i n t e r e s t s , than f o r o v e r w h i c h he I b i d . p . 41. Ibid. Ibid that have These officials, large), their appointive be more practicable s i n g l e a r e a - w i d e government w i t h t y w h i c h i s o v e r l a i d by l of government others. over-view of a l l f u n c t i o n s 4 size factors d i s t r i b u t i o n o f powers among them, the Local the s i g n i f i c a n t d e g r e e by their election p e r s o n n e l , and for the c o n t r o l l a b i l i t y of 56. the many u n i t s has no as a degree of c i t i z e n of of effective remoteness a small communi- government, s u b j e c t to 43 control. As James M a d i s o n argued the nate the i n "The F e d e r a l i s t " , t h e l a r g e r t h e a r e a l e s s the l i k e l i h o o d t h e government, and thus many d i v e r s e terests and that a n y one s p e c i a l g r o u p w i l l the greater accessibility, Therefore, that have t h e i r in- i n terms o f e f f e c t i v e c o n t r o l t h e u n i t o f government e n o u g h t o make I t u n l i k e l y t h a t domi- the l i k e l i h o o d g r o u p s o f t h e community w i l l respected. o f government, should be l a r g e any s i n g l e i n t e r e s t can domi- nate i t . Criterion IV. mate l o c a l very real values While traditional governments a r e i m p o s s i b l e and c o n s t i t u t e complexity though the s m a l l can, l i k e inti- to q u a l i f y , they a r e realities. local land ing on i t s l o c a l create things, be o v e r d o n e . values municipality's size--its government's the s e r v i c e s capacity i t s citizens pressue the capacity of l o c a l Al- advantages, day and f u t u r e p o p u l a t i o n and has c o n s i d e r a b l e to administer require. and The p r o b l e m i s with present area--as w e l l as i t s r e s o u r c e s to strengthen inexorable m u n i c i p a l i t i e s have t h e i r traditional The l o c a l its services increasing population but not e l i m i n a t i o n , of these values. many good of balancing provide and one o f t h e e s s e n t i a l s i n o u r s c a l e o f Obviously, o f government for modification, one of small a s t o what we want o u r g o v e r n m e n t s t o be a n d how we want them t o f u n c t i o n . they concepts and Much c o u l d government u n i t s hear- be done under ^ J a m e s M a d i s o n , The F e d e r a l i s t (New Y o r k : The M o r d e r n L i b r a r y , 1 9 4 l h pp. 5 3 - 6 2 . 45 metropolitan visions be and government by b o u n d a r y a d j u s t m e n t . the c h a r a c t e r considered, o f u r b a n d e v e l o p m e n t w o u l d have but w i t h i n t h i s made more n e a r l y e q u a l Natural d i - context i n size to m u n i c i p a l i t i e s could t h r o u g h c o n s o l i d a t i o n and be amal- 45 gamation. J As t o t h e f u n c t i o n o f p l a n n i n g , is however, local planning a l s o needed f o r : ( l ) c o - o r d i n a t i o n o f urban f u n c t i o n s vided pro- on a m u n i c i p a l i t y - b y - m u n i c i p a l i t y b a s i s s o as t o p r o d u c e t h e most effective of development w i t h i n area-wide g u i d e l i n e s p r o p o s e d by local over-all l o c a l program; and, (2) g u i d a n c e 46 the metropolitan C r i t e r i o n V. should have effective any type trol planning The u n i t o f government a geographic performance. body. area In order causal area Where t h e p o l i t i c a l area, of j u r i s d i c t i o n some i n t e r e s t s may to discharge decide the a f f e c t e d p u b l i c there J. Plunkett, and t o t a l community and perform have p o l i t i c a l 47 may does n o t c o n t a i n t h e A city, have no v o i c e of geographic op_. c i t . . p . con- area a f f e c t e d . whole f o r instance, i t s sewage b e l o w i t s b o u n d a r i e s , However, t h e m e a n i n g ^T. should be d i s - r e g a r d e d . may adequate f o r to co-ordinate o f s e r v i c e , t h e government of the t o t a l c a r r y i n g on a f u n c t i o n and i n this decision. adequacy should not 114. 46' op. c i t . . Advisory p . 225 Commission, 47 I b i d . , p . 51. Performance of Urban Functions, 46 be limited o n l y to the Census M e t r o p o l i t a n A r e a . area which i s contiguous also be regarded t o the if o f the there adequacy s h o u l d indicate Census M e t r o p o l i t a n A r e a p l u s i s any, urbanized Census M e t r o p o l i t a n A r e a as p a r t of. t h e m e t r o p o l i t a n a r e a . the meaning o f g e o g r a p h i c area Any which i s contiguous Therefore, the total the u r b a n i z e d to the should area, Census M e t r o p o l i t a n Area. Criterion VI. To c a r r y out m e t r o p o l i t a n p l a n n i n g four basic functions should planning A. significance hensive B. be The and of i s s u e s that are operate should provide metropolitan clearly w i t h i n the agency's the d a t a of concen- metropolitan competence. needed f o r p r e p a r i n g a Re- compre- plan. Planning: To comprehensive lution the m e t r o p o l i t a n p l a n n i n g agency should upon a s p e c t s search p e r f o r m e d by agency: Research: trate be policies, be so effective, t h a t i t can p r o v i d e of c o n f l i c t i n g services. metropolitan planning interests This f u n c t i o n should and be should a forum f o r the reso- needs i n p r o v i d i n g u r b a n to prepare a comprehensive plan. C. Co-operation and area-wide p l a n n i n g area-wide for s h o u l d be goals f o r p h y s i c a l co-ordinating public of the D. Co-ordination: g o a l s a t the Advice and and to develop principal private The role of recommendations f o r development,, and various affected Assistance: The to propose a c t i o n s toward level of plans attainment government. metropolitan planning agency 47 should be ment and be related to other planning agencies non-government o r g a n i z a t i o n s . to e s t a b l i s h standards and local This function f o r planning governshould r e g u l a t i o n s and to en- 48 courage l o c a l u n i t s t o a d o p t and properly administer them. There should a l e g a l requirement that Criterion VII. metropolitan or planning be agency reviews c o m p a t i b i l i t y of a l l proposals the content, affecting the the conformity metropolitan 49 area. These p r o p o s a l s cipal planning subdivision or r e j e c t . the local c o m p r e h e n s i v e p l a n and However, t h e m e t r o p o l i t a n t h e power t o be The heard, power o f r e v i e w not i s not the area. i s only In each of Therefore, to advise and body's affecting planning make s u g g e s t i o n s Chapters, to a area i s s t u d i e d , the III, t h e M e t r o p o l i t a n W i n n i p e g A r e a i n C h a p t e r IV, M e t r o p o l i t a n Toronto metropolitan A r e a i n C h a p t e r V. Ibid.. p. 221. ^ Ibid.. p. 220. ° I b i d . . p. 221. 9 5 b a s e d on These the government a u t h o r i t i e s a r e 48 H O and review approve but the agency's localities. metropolitan M e t r o p o l i t a n Vancouver Area i n Chapter Areas are. s t u d i e d a n d - a p p r a i s e d three zoning power t o metropolitan the f o l l o w i n g t h r e e muni- t h e power o f v e t o , n e c e s s i t y o f comment on p r o p o s a l s SO metropolitan authority the controls. power i s o n l y rather as would i n c l u d e such measures o f and the Metropolitan Criteria. studied The under 48 Criteria I t o V; and Criteria I I I to VII. following Criteria "fair", three teria o r "poor". and hypothesis A f t e r each s e c t i o n are studied The a p p r a i s a l may I n the l a s t b a s e d on t h e "excellent", Chapter,there i s a of the three M e t r o p o l i t a n the a r b i t r a r y a p p r a i s a l s on i t s p r a c t i c a l be "good", general A r e a s b a s e d on t h e to t e s t grounds. under i n each o f the C h a p t e r s , an a r b i t r a r y a p p r a i s a l i s given. comparison the p l a n n i n g f u n c t i o n s the v a l i d i t y Crio f the CHAPTER I I I THE METROPOLITAN VANCOUVER AREA Vancouver It i s located distribution, bia i s the w e s t e r n r a i l w a y t e r m i n u s i n Canada. on an e x c e l l e n t b u s i n e s s and f i n a n c i a l functions: ( l ) i t i s t h e hub (2) secondary industry; service industry; h a r b o r ; and i t i s the center f o r B r i t i s h and much o f t h e w e s t e r n p r a i r i e s . economic or deep-sea I t has Colum- three basic of B r i t i s h . Columbia's i t i s the p r o v i n c i a l f o c u s f o r t e r t i a r y (3) and, i t i s the major p o r t f o r western Canada In tion t h e Lower M a i n l a n d R e g i o n , t h e r a p i d growth industrial output 2.6 rate of popula- and p u r c h a s i n g power i s t h e m a i n s t i m u l u s development. of manufactured p e r c e n t i n 1931 The p r o p o r t i o n o f the t o t a l goods p r o d u c e d t o 4.2 i n this p e r c e n t i n 1956 to i t s national Region rose from ( i n $ terms). By p 1976 i t should r i s e a g a i n to around 5 per cent. r a n g e and t h e more a d v a n c e d developed i n t h e Lower M a i n l a n d i n r e c e n t more s t a b l e and f l e x i b l e foundation f o r future blishments i n this The widening type o f m a n u f a c t u r i n g which y e a r s makeQ f o r a economy, and p r o v i d e . ^ a growth. has stronger However, t h e i n d u s t r i a l Region are m o s t l y grouped i n the esta- Metropoli- P o p u l a t i o n T r e n d s i n t h e Lower M a i n l a n d . 1921 - 1986: Summary (New W e s t m i n s t e r , Lower M a i n l a n d R e g i o n a l P l a n n i n g B o a r d , A p r i l , 1968). p land o f B. C. , M a n u f a c t u r i n g I n d u s t r y i n t h e Lower (New W e s t m i n s t e r , J a n u a r y , 19E0), p . i . Main- 50 t a n Vancouver A r e a . A t t h i s moment t h e r e velopment f u r t h e r than f i f t y i s no i n d u s t r i a l minutes d r i v i n g de- t i m e f r o m down- 3 town V a n c o u v e r . portant M e t r o p o l i t a n V a n c o u v e r i s b e c o m i n g more as a s e r v i c e and trade im- center r a t h e r than a manufactur- 4 ing center. R e s i d e n t i a l development also taken place present, i n M e t r o p o l i t a n Vancouver i n a consistent centripetal fashion. and f u t u r e p o p u l a t i o n has The past, g r o w t h c a n be s e e n as shown i n the f o l l i w n g t a b l e : TABLE I I THE POPULATION GROWTH I N METROPOLITAN VANCOUVER AREA 1921 Year - 1986 . Number o f Population 1921 1931 1941 222,294 337,218 394,588 1951 562,048 1956 1961 1966 1971 1976 1981 1986 665,110 790,259 892,384 1,026,000 1,169,000 1,335,000 1,524,000 I n d u s t r i a l L a n d P r o s p e c t s i n t h e Lower Main-l a n d R e g i o n o f B r i t i s h C o l u m b i a (New W e s t m i n s t e r , November, • s 196T), p. 13. k .City o f Vancouver, P l a n n i n g Department, Vancouver's Changing P o p u l a t i o n (Vancouver, June, 1 9 6 4 ) , p. 6 . 51 This population figures from from t h e Census o f Canada, w h i l e Lower M a i n l a n d Regional 1921 t o 1966 the r e s t are derived a r e p r o j e c t e d by t h e Planning B o a r d . H o w e v e r , massive 6 m i g r a t i o n i s the key f a c t o r i n this M e t r o p o l i t a n Vancouver f i r s t i n t h e 1951 tion ver City, received o f f i c i a l recogni- T o d a y , i t i n c l u d e s 15 Census o f Canada. a r e a s : West V a n c o u v e r , N o r t h r a p i d p o p u l a t i o n growth. Vancouver D i s t r i c t , North U n i v e r s i t y Endowment L a n d s , V a n c o u v e r C i t y , local VancouBurnaby, ri'; P o r t Moody, C o q u i t l a m , New W e s t m i n s t e r , E r a s e r M i l l s , q u i t l a m , Richmond, D e l t a , S u r r e y and White On of June 29, 1967, under S u b - s e c t i o n the M u n i c i p a l A c t o f the Province Praser-Burrard Regional Patent. District The two areas District Vancouver R e g i o n a l Trends. was f u r t h e r on June changed 13, 1968.^ includes a l l that are the E l e c t o r a l and the E l e c t o r a l Area B District 766 Columbia, the the^'J w i t h i n t h e Census M e t r o p o l i t a n V a n c o u v e r A r e a electoral Hill) (l) of Section was e s t a b l i s h e d b y L e t t e r s G r e a t e r Vancouver R e g i o n a l D i s t r i c t nicipalities Rock. of B r i t i s h The name o f t h i s R e g i o n a l D i s t r i c t to the G r e a t e r Vancouver R e g i o n a l P o r t Co- (loco). i s regarded Area A muplus (University Therefore, the Greater i n this -''Lower M a i n l a n d R e g i o n a l P l a n n i n g B o a r d , 1921 ^ 1986, l o c . c i t . t h e s i s as the Population 6 °Ibid. on ^The June' 13, name was c h a n g e d b y a s u p p l e m e n t a r y 1968. Letters Patent Q Vol. The P r o v i n c e o f B r i t i s h C o l u m b i a , The B . C. G a z e t t e . CVTI, No. 28 ( V i c t o r i a , J u l y 13, 1967T"T~ INSET MllK -^^OUVERJ VANCOUVE..- '</ I V * • ;ctxjuiT- jBURNAEY \^WW'^'tJ^ 1 VANCOUVER I .AJ^L^^ ^ ^.J" lir 0 ;KENT MAPLE RIDGE" 'sin* V |. m»' ' /'ii, 'i > CHIU-IWACK, RICHMOND . CHIIUIWHACK AlSSlOW SURREY DELTA UNGLEY .1"/- tANGLEY CITY c WHITE R O C K |:8OUN0AM UMAS II BAY ~ a. MATSQ.UI ' l c * IM A 0 A U M i T 6 » " 1 J _ S T A T E S • N • I BOUNDARY OF VANCOUVER METROPOLITAN A R E A MUNICIPAL O R INTERNATIONAL BOUNDARY SCALE OF MILES >0 Z V 6 a to tr J—i a— t-a—n;xr~Krr-| APRIL, 1966 SOURCE: LOWER MAlJJ- •LANO REGIONAL PLAN- NING BOARD iilfc' MOUNTAINOUS TERRAIN* THE LOWER MAINLAND REGION O F BRITISH C O L U M B I A fa ill"/, 53 metropolitan government a u t h o r i t y o f M e t r o p o l i t a n I n 19^9, Affairs, Mr. R. w h i c h i t was declare a t the decided p e t i t i o n was and each i n d i v i d u a l an Planning Region a official Regional Affairs I n 1957, by Division S. B. C. 6, on other by p r o c l a m a t i o n June 2 1 , 1949» P a r t XXI Municipal Regional the p l a n n i n g in the Therefore, established and Minister u n d e r the Town Planning Regional Act of B r i t i s h Planning Board Act, Plan- Columbia. i s governed Chapter 255, R. 9 area o f t h e Lower Mainl'and i n c l u d e s a l l the local areas, 1 0 Regional M e t r o p o l i t a n Vancouver t h e Lower M a i n l a n d ning Board i s , t h e r e f o r e , regarded 1966 Area." of the of the M u n i c i p a l amended. to community-- a stake t h e p r o v i s i o n s f o r Community and i 9 6 0 as P l a n n i n g Board 15 Planning agreement t h a t e a c h gazetted Lower M a i n l a n d Since plus "Regional P l a n n i n g B o a r d was n i n g were b r o u g h t u n d e r the present P r o v i n c i a l Government through h i s c o u n c i l — h a s A r e a was of Municipal The the Municipal h e l d i n Burnaby a t d e v e l o p m e n t o f t h e R e g i o n as a w h o l e . t h e Lower M a i n l a n d Act. to p e t i t i o n t h e Lower M a i n l a n d g r o w t h and of the M i n i s t e r of C. M c D o n a l d , a m e e t i n g was The the invitation Vancouver. as Area Regional Plan- the m e t r o p o l i t a n Vancou- Lower M a i n l a n d R e g i o n a l P l a n n i n g B o a r d , A n n u a l (New W e s t m i n s t e r , J a n u a r y , 1 9 6 7 ) , p . 3 . Report, T h e r e a r e 14 m u n i c i p a l i t i e s o u t s i d e o f the M e t r o p o l i t a n Vancouver Area. However, t h e r e i s one u n - o r g a n i z e d a r e a w h i c h a l s o s h o u l d be c o u n t e d . 1 0 54 v/er p l a n n i n g body b e c a u s e there i s no o t h e r a r e a - w i d e planning body. I . The M e t r o p o l i t a n Government A u t h o r i t y Organization. provided Provincial l e g i s l a t i o n has i n r e c e n t f o r the establishment Columbia. of regional d i s t r i c t s The o b j e c t i v e s o f t h i s legislation years i n British c a n be s t a t e d a s below: A. To c r e a t e a n a d a p t a b l e type of o r g a n i z a t i o n capable o f h a n d l i n g any i n t e r - m u n i c i p a l s e r v i c e , w i t h municipalities B. To p r e s e r v e and the a f f e c t e d helping i n the design of the o r g a n i z a t i o n . both the i d e n t i t y of existing a s e n s e o f community, e v e n i f t h i s municipalities involves extra cost. C. To b r o a d e n t h e b o r r o w i n g out D. removing t h e i r To p r o v i d e nized areas The clearly a local with-. 7 t a x i n g powers. decision-making body f o r t h e u n - o r g a - o f t h e Province." '" ' 1 1 idea of regional d i s t r i c t s towards the establishment wide g o v e r n m e n t a u t h o r i t i e s area-wide base o f t h e m u n i c i p a l i t i e s i nBritish Columbia i s o f general-purpose to provide assigned and a r e a - s e r v i c e s on base. When a n d where t h e M i n i s t e r o f M u n i c i p a l A f f a i r s feels -^T. R a s h l e i g h , "B. C.'s New R e g i o n a l D i s t r i c t s " . Comm u n i t y P l a n n i n g i n B. C. V o l . V I , No. 1 ( F e b r u a r y , 1966), p . 3. 55 there i s a local n e e d a n d demand f o r a R e g i o n a l D i s t r i c t , he p r e p a r e s a recommendation t h a t c e r t a i n powers, o b l i g a t i o n s commendations a r e f i r s t councils. a district and d u t i e s . forwarded Within s i x t y days, the proposed f u n c t i o n s sixty-day to waiting period t o the a f f e c t e d the municipal councils may hold the cost district. When t h e the M i n i s t e r the Lieutenant-Governor i n C o u n c i l municipal i s t o share o f the r e g i o n a l i s over, with The M i n i s t e r ' s r e - a r e f e r e n d u m on w h e t h e r t h e m u n i c i p a l i t y of be i n c o r p o r a t e d that may recommand Letters Patent 12 creating a regional ver district Regional D i s t r i c t be i s s u e d . was c r e a t e d according In a d d i t i o n t o the p r o v i s i o n s functions Patent are provided Patent. commandation t o a d d a n y f u n c t i o n , Affairs be must r e c e i v e granted specify the procedure. district by L e t t e r s B e f o r e making a r e - the M i n i s t e r of Municipal from the R e g i o n a l Board a request t h e power t o u n d e r t a k e a f u n c t i o n , that i t such request to t h e member m u n i c i p a l i t i e s w h i c h a r e t o p a r t i c i p a t e a n d basis before to this Vancou- i n the Municipal Act, t o the r e g i o n a l o r supplementary L e t t e r s The G r e a t e r f o rsharing the cost f o r each f u n c t i o n . advancing a request, t h e R e g i o n a l B o a r d must However, receive the consent o f the c o u n c i l o f each m u n i c i p a l i t y which i s to 13 p a r t i c i p a t e i n the function. Therefore, i t i s c l e a r that, J •'-"Ibid. T h e Province of B r i t i s h t e r 255, Sections 766(2), 766(3) a s amended. 1 3 C o l u m b i a . M u n i c i p a l A c t . Chapa n d 766(4), R. S. B . C. i 9 6 0 56 while the establishment Provincial mainly on responsibility, the initiative c i p a t i o n of the the local regional district present of r e g i o n a l d i s t r i c t s is primarily a the assignment of f u n c t i o n s i s of l o c a l g o v e r n m e n t s ; and the governments i n a s s i g n i n g f u n c t i o n s i s a l s o on a voluntary basis. Vancouver Regional At time, the Greater been a s s i g n e d the h o s p i t a l f u n c t i o n which i s p r o v i d e d vincial : can p r e p a r e a m a j o r i t y o f a l l the Directors. i n d i v i d u a l municipal Vancouver R e g i o n a l function at this No only by Pro- District has not Mainland Regional from the R e g i o n a l to the Authority pulbic hearing Since been a s s i g n e d a or by approval the Greater planning performed by the Planning Board which i s a separate District. hypothesis This of t h i s 14 .. a p p r a i s a l of i n regard thesis. Besides, »••-• 4 entity there District Me- Lower i s highly undesirable between t h e R e g i o n a l P l a n n i n g Board.; The major moment, t h e a r e a - w i d e p l a n n i n g m a t t e r s i n working r e l a t i o n s h i p Regional Board T h i s p l a n i s adopted council i s required. t r o p o l i t a n V a n c o u v e r A r e a have t o be no the has the R e g i o n a l a r e g i o n a l p l a n which o u t l i n e s p r o j e c t e d uses of l a n d , i n c l u d i n g major roads. ding District to legislation. I f\ i n c l u d e d i n i t s L e t t e r s P a t e n t , by parti- accorhas and been the .^.v-.- • ' ; t h e M e t r o p o l i t a n V a n c o u v e r Government to C r i t e r i o n I i s therefore judged to be "poor". Mr. J i m M c l e a n , p e r s o n a l i n t e r v i e w h e l d a t t h e Vancouver R e g i o n a l D i s t r i c t , V a n c o u v e r , August 9, 1968. Greater 57 Legal Powers. Generally, same l e g a l powers as 775 Section of the any the regional municipality. Municipal Act district This can have i s stated the under that: E x c e p t as i s o t h e r w i s e p r o v i d e d u n d e r t h i s D i v i s i o n o r L e t t e r s P a t e n t , the p r o v i s i o n s o f P a r t I I to V I I I , i n c l u s i v e r e l a t i n g t o r u l e s , r e q u i r e m e n t s , and p r o c e dures a p p l y , m u t a t i s mutandis, to a R e g i o n a l D i s t r i c t and t o t h e R e g i o n a l B o a r d and t h e D i r e c t o r s t h e r e o f i n r e s p e c t o f any o r a l l o f t h e p o w e r s , d u t i e s , and oblig a t i o n s o f the R e g i o n a l D i s t r i c t o r o f the R e g i o n a l B o a r d g r a n t e d o r i m p o s e d u n d e r t h i s D i v i s i o n as i f the R e g i o n a l D i s t r i c t were a m u n i c i p a l i t y ; . . . . Therefore, of the Regional D i s t r i c t legal authority f o r the functions. However, the ing I t receives power. i s able t o have a b r o a d scope purpose of performing i t s assigned Regional D i s t r i c t does n o t i t s a n n u a l revenue f r o m the have tax- member mu- nicipalities. The G r e a t e r Vancouver R e g i o n a l D i s t r i c t b e e n a s s i g n e d any it has the is assigned function not yet o t h e r t h e n h o s p i t a l s , however, p o t e n t i a l to e x e r c i s e more f u n c t i o n s , has but c e r t a i n l e g a l powers when i t s u c h as housing, transportation, waste d i s p o s a l , p a r k a c q u i s i t i o n , e t c . At time the appraisal of the V a n c o u v e r Government A u t h o r i t y i n regard to C r i t e r i o n II i s therefore better trict present j u d g e d t o be "fair". when more f u n c t i o n s i n the Control. is the assigned to a p p r a i s a l may the Regional be Dis- future. Under the c o n t r o l l e d by Municipal are However, t h e Metropolitan Act, present legislation, i t s r e g i o n a l boards i t i s stated that: a regional Under S e c t i o n district 769 (of the 58 . . . the Regional Board s h a l l c o n s i s t of the r e q u i s i t e number o f D i r e c t o r s a p p o i n t e d by t h e C o u n c i l o r T r u s t e e s o f e a c h m u n i c i p a l i t y f r o m among i t s members . . . a n d t h e r e q u i s i t e number o f D i r e c t o r s e l e c t e d from the e l e c t o r a l areas . . . . T h e r e i s no d i r e c t c o n t r o l by t h e c i t i z e n s . only exercise t h e i r power on t h e r e g i o n a l d i s t r i c t t h e i r municipal gional c o u n c i l s which appoint Directors through t o t h e Re- Board. The and The c i t i z e n s c a n number o f D i r e c t o r s each m u n i c i p a l i t y or area t h e number o f v o t e s e a c h D i r e c t o r has on R e g i o n a l m a t t e r s i s c a l c u l a t e d by d i v i d i n g t h e p o p u l a t i o n has District o f the muni- c i p a l i t y by t h e " v o t i n g u n i t " , a p o p u l a t i o n figure specified in on m a t t e r s the L e t t e r s Patent. are does n o t a p p l y f u n c t i o n which w i l l liable t o share Directors appoint the vote only of concern t o t h e i r m u n i c i p a l i t i e s f i n a n c i a l l y . triction The Directors t o any p r o p o s a l require At the present tish Columbia Ibid. ( l ) , Section that: date. a r e 21 D i r e c t o r s i n Vancouver R e g i o n a l T h e y come f r o m 14 m u n i c i p a l i t i e s a n d 2 e l e c t o r a l under S u b s e c t i o n t o become t o be C h a i r m a n a n d time, there t o the term o f o f f i c e res- related to that i n the cost o f the f u n c t i o n a t a f u t u r e Regional Board o f the Greater As This s u c h member m u n i c i p a l i t y e l e c t one o f t h e m s e l v e s staff. which District. area.^ of the D i r e c t o r s , i t i s stated 771 o f t h e M u n i c i p a l Act of B r i - 59 Each D i r e c t o r appointed by a m u n i c i p a l i t y t o a R e g i o n a l B o a r d upon t h e i n c o r p o r a t i o n o f t h e R e g i o n a l D i s t r i c t s h a l l h o l d o f f i c e u n t i l the t h i r t y - f i r s t day of January i n the year next s u c c e e d i n g o r u n t i l the appointment o f h i s s u c c e s s o r , whichever i s the l a t e r . and under S u b s e c t i o n (2) o f t h e same S e c t i o n t h a t : A f t e r t h e f i r s t appointment o f D i r e c t o r s by a m u n i c i p a l i t y , e a c h m u n i c i p a l D i r e c t o r s h a l l be a p p o i n t e d a n n u a l l y , on o r b e f o r e t h e f i r s t d a y o f F e b r u a r y , by r e s o l u t i o n o f the C o u n c i l o r o f the T r u s t e e s , a s t h e c a s e may b e , a n d s h a l l h o l d o f f i c e u n t i l the t h i r t y - f i r s t day o f January o f the year next succeeding o r u n t i l the appointment o f h i s successor, whichever i s the l a t t e r . This legislation ensures the R e g i o n a l Board appointed l o n g e r t h a n one y e a r u n l e s s he i s r e - by h i s c o u n c i l . R e g i o n a l Board member m u n i c i p a l i t i e s . the P r o v i n c i a l contributes Letters t h a t no D i r e c t o r c a n h o l d o f f i c e i n revenues a r e o b t a i n e d each year The u n - o r g a n i z e d . a r e a s Minister of Finance. o n l y to those Patent a r e taxed through Each m u n i c i p a l i t y o r area r e g i o n a l d i s t r i c t expenses which t h e say i t i s responsible f o r . G r e a t e r Vancouver R e g i o n a l D i s t r i c t . f o r $60,000. from the The b u d g e t o f t h e the year 1968 was o n l y 1 6 The Authority a p p r a i s a l o f t h e M e t r o p o l i t a n V a n c o u v e r Government i n regard to C r i t e r i o n I I I i s t h e r e f o r e judged t o be "fair". L o c a l Governments a n d T h e i r F u n c t i o n s . ment o f t h e G r e a t e r l 6 Ibid. Vancouver R e g i o n a l Since District the e s t a b l i s h i n June, 1967, 60 no l o c a l government has b e e n d i s s o l v e d , amalgamated, incorporated because of t h i s new a r e many s m a l l m u n i c i p a l i t i e s , P o r t Moody, P o r t all the l o c a l Coquitlam, New establishment. s u c h as N o r t h have b e e n Under S e c t i o n 790 1 or Although Vancouver Westminster and F r a s e r governments w i t h i n the j u r i s d i c t i o n gional District 17 there City, Mills, of this Re- preserved. o f the M u n i c i p a l Act i t i s s t a t e d that: The p o w e r s , o b l i g a t i o n s , and d u t i e s o f a member mun i c i p a l i t y s h a l l be r e d u c e d o n l y t o t h e e x t e n t t h a t a n y o f them have b e e n a s s i g n e d t o t h e e x c l u s i v e j u r i s d i c t i o n o f the R e g i o n a l D i s t r i c t under L e t t e r s Patent or t o the e x t e n t p r o v i d e d i n t h i s D i v i s i o n . Since the G r e a t e r Vancouver R e g i o n a l D i s t r i c t assigned the h o s p i t a l f u n c t i o n , Regional D i s t r i c t had before still the l o c a l has o n l y b e e n governments i n t h i s m a i n t a i n a l l the o t h e r f u n c t i o n s the e s t a b l i s h m e n t of t h i s they Regional D i s t r i c t i n 1967« However, most local Region have a s s i g n e d c e r t a i n f u n c t i o n s t o some s i n g l e - p u r p o s e functional trict, districts, g o v e r n m e n t s i n t h e Lower s u c h a s t h e G r e a t e r V a n c o u v e r Water t h e G r e a t e r V a n c o u v e r Sewerage Vancouver-Fraser Parks Mainland and D r a i n a g e Dis- District, District, etc. A l t h o u g h t h e r e were p r o p o s a l s f o r t h e a m a l g a m a t i o n o f N o r t h V a n c o u v e r C i t y and N o r t h V a n c o u v e r D i s t r i c t , and f o r t h e a m a l g a m a t i o n o f V a n c o u v e r C i t y and B u r n a b y D i s t r i c t , t h e f o r m e r was d e f e a t e d by a g e n e r a l v o t e o f t h e c i t i z e n s i n b o t h m u n i c i p a l i t i e s on September 1 9 , 1 9 6 8 , a n d t h e l a t t e r i s s t i l l u n d e r s t u d y by b o t h m u n i c i p a l i t i e s i n v o l v e d . 61 Therefore, the a p p r a i s a l t o the M e t r o p o l i t a n Vancouver Governmental A u t h o r i t y i n r e g a r d to Criterion I V i s t o be "fair". Geographic contains the t o t a l Electoral not Adequacy. Area The G r e a t e r V a n c o u v e r R e g i o n a l Census M e t r o p o l i t a n V a n c o u v e r A r e a A and the E l e c t o r a l include Langley the o n l y shortcoming geographic adequacy. The appraisal Authority i n regard p l u s the However, i t does D i s t r i c t , P i t t Meadows, a n d Maple R i d g e w h i c h have b e e n d e v e l o p i n g r a p i d l y be Area B. District i n recent years. i n terms o f the R e g i o n a l This may District's t o t h e M e t r o p o l i t a n V a n c o u v e r Government to Criterion V i s t h e r e f o r e judged t o be "fair". II. The M e t r o p o l i t a n a n d L o c a l P l a n n i n g Since separate it t h e Lower M a i n l a n d Functions R e g i o n a l P l a n n i n g Board isa entity from the G r e a t e r Vancouver R e g i o n a l District, i s necessary here t o study f i r s t l y and b r i e f l y the ^Planning Board's o r g a n i z a t i o n and f u n c t i o n s . The Lower M a i n l a n d R e g i o n a l P l a n n i n g Board by the p r o v i s i o n s of D i v i s i o n of British pality of and, w i t h i n the P l a n n i n g Area electes (3) P a r t XXI o f the M u n i c i p a l A c t Columbia which e s t a b l i s h e s t h a t : (1) i t s C o u n c i l who s h a l l Board 6, appoints hold office support e a c h muni c i r ' t o the Board f o r one y e a r ; i t s own C h a i r m a n a n d d e t e r m i n e s the f i n a n c i a l i s governed one member (2) the i t s own procedure; o f the Regional Planning Board 62 shall be s h a r e d b y t h e component m u n i c i p a l i t i e s on a p e r c a - 18 pita basis. appointed is However, t h e B o a r d a l s o c o m p r i s e s one member by the L i e u t e n a n t - G o v e r n o r i n C o u n c i l . privileged and shall to p a r t i c i p a t e i n General be e l i g i b l e The member Meetings o f the Board, t o h o l d any e l e c t i v e T h e r e a r e two i m p o r t a n t This office. committees under the B o a r d . t e c h n i c a l Committee, composed o f s e n i o r M u n i c i p a l f r o m member m u n i c i p a l i t i e s a n d t h e P r o v i n c e , advises Planners the S t a f f Executive D i r e c t o r o n t h e B o a r d ' s t e c h n i c a l work p r o g r a m . Secondly, there one i s the M u n i c i p a l senior municipal each m u n i c i p a l i t y . the staff ting staff This Staff Committee, composed o f member a p p o i n t e d Committee serves by C o u n c i l as a l i a i s o n from between a n d member m u n i c i p a l i t i e s o n t e c h n i c a l m a t t e r s to planning c i a l Regional rela- p r o g r a m s , a n d on a d m i n i s t r a t i o n o f t h e O f f i 1Q Plan. J T h e r e a r e 28 member m u n i c i p a l i t i e s w i t h i n t h e P l a n n i n g Board. Control. Act, Under S u b s e c t i o n i ti s stated 4, S e c t i o n 720 o f t h e M u n i c i p a l that: The B o a r d s h a l l c o n s i s t o f one member o f C o u n c i l appointed by the C o u n c i l o f each m u n i c i p a l i t y w i t h i n t h e a r e a a n d one member a p p o i n t e d b y t h e L i e u t e n a n t G o v e r n o r i n C o u n c i l who s h a l l h o l d o f f i c e d u r i n g pleasure. Since t h e members o f t h e Lower M a i n l a n d R e g i o n a l 1966, Lower M a i n l a n d R e g i o n a l op_. c i t . . , p . 9. 1 9 Ibid.. p . 10. Planning Planning Board, Annual Board Report, 63 are the not e l e c t e d d i r e c t l y by the c i t i z e n s i n the Planning c i t i z e n s c a n n o t e x e r c i s e t h e i r power d i r e c t l y Region, over the Board. As it i s s a i d under S u b s e c t i o n that the is t o the term o f o f f i c e "the term o f o f f i c e initial o f e a c h C o u n c i l member, except f o r or u n t i l i s a l s o p r o v i d e d under S u b s e c t i o n "the Board s h a l l , Chairman, and s h a l l that h i s successor ing determine councils, i t s own a f f a i r s . f r o m i t s member The be i t s own p r o c e d u r e . " T h i s means by t h e i s the sole a u t h o r i t y i n determin- municipalities. i n regard to C r i t e r i o n Vancouver Area I I I i s therefore Planjudged "fair". A c t , no l o c a l Lower M a i n l a n d Board a The P l a n n i n g B o a r d r e c e i v e s i t s r e v e n u e Local Planning Functions. this f r o m i t s own members, e l e c t a p p r a i s a l o f the M e t r o p o l i t a n ning Functions pal 7 o f t h e same t h e P l a n n i n g B o a r d , whose members a r e a p p o i n t e d member m u n i c i p a l in S e c t i o n 720 o f t h e same A c t a p p o i n t m e n t , i s f o r one y e a r Section that and members, appointed." It to 6, o f the P l a n n i n g Board planning function i s lost Regional can provide Under the p r o v i s i o n s i n the M u n i c i - Planning Board. or assigned Although upon by b o t h p a r t i e s no c o m p u l s o r y power i s g i v e n t o t h e R e g i o n a l regard. the Planning p l a n n i n g s e r v i c e s t o a n y member m u n i c i p a l i t y , s e r v i c e h a s t o be a g r e e d this t o the Therefore, local municipalities involved; Planning retain Board full 64 a u t h o r i t y on l o c a l p l a n n i n g m a t t e r s o f any o f f i c i a l Regional s u b j e c t t o the p r o v i s i o n s Plan. Among t h e 28 member m u n i c i p a l i t i e s o f t h e R e g i o n a l P l a n n i n g B o a r d , 10 m u n i c i p a l i t i e s have e m p l o y e d p r o f e s s i o n a l palnning s t a f f s : Burnaby, Coquitlam, North Vancouver Surrey, the City, D e l t a , New North Vancouver D i s t r i c t , Westminster, Richmond, V a n c o u v e r , a n d West V a n c o u v e r . A l l o f t h e s e jurisdiction of the Greater Vancouver R e g i o n a l are within District. T h i s means t h a t most o f t h e l o c a l governments w i t h i n t h e M e t r o - politan own p l a n n i n g and V a n c o u v e r A r e a have t h e i r establishments programs. Although over gional Planning services, they half o f the m u n i c i p a l i t i e s w i t h i n t h e Re- Area having not established t h e i r are small i n s i z e , cessary planning and a r e a b l e own palnning t o o b t a i n ne- s e r v i c e s f r o m t h e Lower M a i n l a n d Planning Board by c o n t r a c t . The a p p r a i s a l o f the M e t r o p o l i t a n Vancouver Area ning Functions t o be bia, to Criterion IV i s therefore judged "good". Geographic the i n regard Plan- Adequacy. The Lower M a i n l a n d extreme south-west c o r n e r i t s boundaries parrallel Strait extend to the United of Georgia o f the Mainland a b o u t 25 m i l e s Area i s i n of B r i t i s h from the a t V a n c o u v e r e a s t w a r d a b o u t 100 m i l e s metropolitan Colum- n o r t h o f and r o u g h l y S t a t e s boundary, and r u n n i n g t o t h e Town o f Hope a t t h e e n t r a n c e The Planning to the F r a s e r R i v e r development i s c o n c e n t r a t e d inland Canyon. i n the 65 Western p a r t o f the R e g i o n , about o n e - t h i r d o f the Area, f o c u s i n g on V a n c o u v e r . Although the M e t r o p o l i t a n c o u v e r A r e a i s g r o w i n g c o n t i n u o u s l y and that the u r b a n i z e d boundaries area will o f the R e g i o n a l not be rapidly, able Planning Planning i t is Vancertain t o grow beyond Area i n the the foreseeable future. The a p p r a i s a l of the ning functions i n regard M e t r o p o l i t a n Vancouver Area to C r i t e r i o n V i s therefore Plan- judged to be " e x c e l l e n t " . Metropolitan Planning Mainland The of Regional Municipal Functions. prime r o l e Planning Board i s to prepare A c t does n o t the R e g i o n a l The Plan. d e f i n e the A second r o l e exact of vide Technical Staff f o r l o c a l planning o f the Lower a regional plan. content or nature the Board i s to pro- on a f e e - f o r - s e r v i c e 20 b a s i s upon r e q u e s t o f the m u n i c i p a l i t i e s . t h e p r e p a r a t i o n o f an out a series many a s p e c t s tial report of parkland, industrial population. of these The Regional "Chance and land, farmland, facts, Challenge" f i n d i n g s and which formed the Plan enacted on A u g u s t 29, the p r e s e n t a t i o n of the p r i n c i p l e s port been t o to carry residenrecommen1964 s t u d i e s were i n t e g r a t e d i n t h e B o a r d ' s "Chance and Official P l a n has approach o f b a s i c s t u d i e s t o examine t h e R e g i o n i n i t s l a n d , and dations o v e r a l l Regional The Challenge", I b i d . . p. 4. and a series basis of 1966. the Following o b j e c t i v e s i n the of steps were t a k e n reby 66 the Board to prepare reactions of officials. Regional visions the The Councils, Municipal Official Planning of the draft reports, s o l i c i t Regional A r e a was Municipal Order-in-Council of the comments arid Provincial P l a n f o r the Lower t h e Lower M a i n l a n d 1965; and was later the pro- Regional adopted P r o v i n c i a l Government on and Mainland adopted i n accordance with A c t by June 1 7 , P l a n n i n g B o a r d on staff, the by 29, August 1966. The Official development p o l i c y agencies, vince Plan the Regional of the c o n s i s t s of Schedules of Regional co-ordinated municipalities, their P l a n n i n g B o a r d , the i t s agencies. three p a r t s : the General the Administrative Provisions. the Plan and c o n s i s t o f the The Pro- C o l u m b i a , and Development Area P o l i c i e s , The c o n s t i t u t e s the Lower M a i n l a n d Lower M a i n l a n d of B r i t i s h Plan t e x t of the P r o v i s i o n s , the L o n g Range P l a n Map, 21 the Current S t a g e P l a n Maps, and P l a n has thereby policies and utility provided the b a s i s f o r m u n i c i p a l system extensions and s e r v i c i n g programs. any concepts realistic However, t h i s f o r the suggestions private improvements, f o r highway college planning, Plan has f u t u r e development. f o r the and The development community p l a n s t u d i e s , f o r p u b l i c and t i o n p l a n s , f o r s c h o o l and general o t h e r r e f e r e n c e maps. for loca- Municipal only proposed some I t does n o t give f u t u r e growth of Metropolitan Lower M a i n l a n d R e g i o n a l P l a n n i n g B o a r d , O f f i c i a l g i o n a l P l a n (New W e s t m i n s t e r , 1 9 6 5 ) , p . 2 . Re- 67 Vancouver. The lopment P l a n n i n g Board's of the Region role i n g u i d i n g the o v e r a l l i s involving the Board more and more i n t h e p r o g r a m s and a c t i v i t i e s ment a g e n c i e s . While ments, the Board having close a l s o has contact with l o c a l of t h i s Regional f u n c t i o n w i t h and c o - o r d i n a t i o n of the v a r i o u s p u b l i c the Board, a p u b l i c from a l l i n t e r e s t e d p a r t i e s . meetings o f the Board nicipal, and F e d e r a l o f the Board the R e g i o n . m e e t i n g has Provincial i s the each major study to receive are i n a d d i t i o n A liaison and p r i v a t e w i t h the m u n i c i p a l i t i e s , actiby reactions to the Provincial, Mu- F o r example, d u r i n g the p e r i o d J a n u a r y , 1965 preparing the R e g i o n a l P l a n , from the Board held a series and r e p r e s e n t a t i v e s , and B o a r d their On been h e l d These staff. with govern-* inter-municipal agencies. key p a r t a t work b u i l d i n g i t s staff of other govern- working r e l a t i o n s h i p a g e n c i e s , F e d e r a l a g e n c i e s , and vities and deve- o f meetings w i t h the staff to J u l y , of 1966, municipalities reviewed the P l a n 22 policies ever, i n s p e c i a l meetings the Board's i n g a key Technical w i t h the m u n i c i p a l i t i e s . Committee co-ordinating role. This i s increasingly Committee, m a i n l y o f the p r e s e n t P l a n n i n g O f f i c e r s municipalities, meets m o n t h l y of i n t e r - m u n i c i p a l tributing 22 t o the Board's concern. consisting evaluate matters In addition to t e c h n i c a l work p r o g r a m , t h e , Annual Report. 1966, perform- o f t h e Lower M a i n l a n d t o d i s c u s s and and r e g i o n a l How- op. cit., p. con- Committee 11. 68 members have t a k e n a d v a n t a g e plore matters o f mutual local proved working r e l a t i o n s h i p s problems o f the monthly meetings c o n c e r n and t o e s t a b l i s h imbetween s t a f f s i n neighboring municipalities. ordination function o f the Board it the Board's i s apparant that be e x p a n d e d to include land M u n i c i p a l i t i e s , cies active Planning 1968, However, i f t h e c o - Technical successful, Committee could r e p r e s e n t a t i o n f r o m a l l t h e Lower as w e l l as from o t h e r governmental i n the Region. Junary 16, w o r k i n g on s i m i l a r i s t o be t r u l y T h i s need the M i n i s t e r o f M u n i c i p a l A f f a i r s , on to ex- has b e e n Mainagen- a p p r e c i a t e d by and i n a d d r e s s i n g t h e B o a r d t h e M i n i s t e r announced Committee would well that a Technical be a s s i g n e d t o t h e B o a r d w i t h r e p r e - s e n t a t i o n from the s e v e r a l Provincial Departments and f r o m 23 Federal Departments. A l s o under the R e g i o n a l f u n c t i o n , the Board p r o v i d e s i n f o r m a t i o n on t h e R e g i o n a n d i t s many a s p e c t s t o t h e m u n i c i palities, duals . development authorities, private firms The B o a r d a l s o m a i n t a i n s a r e f e r e n c e and i n d i v i - library that i s u s e d by P r o v i n c i a l a n d m u n i c i p a l a g e n c i e s i n a d d i t i o n in k e e p i n g t h e B o a r d up t o d a t e on t h e l a t e s t R e g i o n a l a n d Community P l a n n i n g . to f u r t h e r The B o a r d ' s literature i n staff the cause o f p l a n n i n g by g i v i n g p u b l i c r e q u e s t , and by f u r n i s h i n g d i s p l a y m a t e r i a l s , Annual Report, I967 1 9 6 8 ) , p.~F" t o use endeavor a d d r e s s e s on on community and (New W e s t m i n s t e r , January, 69 and regional planning matters. Under the " m u n i c i p a l B o a r d , i t may " u n d e r t a k e municipality 24 planning s e r v i c e " r o l e of the community p l a n n i n g on s u c h t e r m s a n d c o n d i t i o n s a g r e e d upon." This service work f o r a member as a r e m u t u a l l y i s a v a i l a b l e on r e q u e s t t h o s e member m u n i c i p a l i t i e s n o t h a v i n g p l a n n i n g their Commissions a n d B o a r d s - - t o to p r o v i d e ties the continuing having planning advice; staff--to assist conduct o f major s t u d i e s , regional context. extension In this o f the municipal inter-municipal ( 2 ) those local municipali- department basis i n studies the Board's s t a f f planning and t o s t u d i e s and on a c o n s u l t i n g and t o place case, staff conduct p l a n n i n g planning to: ( 1 ) ina s e r v e as an staff; ( 3 ) any a g e n c y ; a n d , ( 4 ) P r o v i n c i a l Government depart- 25 ments. ning C o n s i d e r a b l e u s e has b e e n made o f t h e m u n i c i p a l J service since community p l a n s , i t was e s t a b l i s h e d school plans, i n 1949 with studies of park plans, apartment s t u d i e s , studies, advance s t r e e t and s u b d i v i s i o n p l a n n i n g , ( l ) the s e r v i c e Board's p r o f e s s i o n a l influence studies, servicing zoning by- policies i s an a d v i s o r y s t a f f - - t h e Board the t e c h n i c a l advice offered t o govern Ibid. this service provided itself by t h e does n o t r e v i e w o r to municipal councils; . Annual R e p o r t . 1 9 6 6 . op. c i t . . p . 7« 2 5 center c o n t r o l b y - l a w s , a n d r e p l o t t i n g schemes. However, t h e B o a r d has e s t a b l i s h e d service: center commercial studies, laws, s u b d i v i s i o n civic plan- 70 (2) a l l s t u d i e s and i n f o r m a t i o n dential until reports carried t o the m u n i c i p a l i t y , agency, o r department r e l e a s e d b y them; (3) o n l y a t o t a l n i n g work i s t o be u n d e r t a k e n a s w i l l assigned Annual o u t r e m a i n as c o n f i - t o the m u n i c i p a l planning amount o f l o c a l utilize the s t a f f plantime s e r v i c e under the Board's Program.^ Therefore, the a p p r a i s a l o f the M e t r o p o l i t a n Area P l a n n i n g F u n c t i o n s i n regard Vancouver t o C r i t e r i o n V I i s t o be "good". Legal Powers. bility Although member m u n i c i p a l i t i e s have r e s p o n s i - f o r d e c i s i o n s on r e g i o n a l p l a n n i n g m a t t e r s , Mainland Regional interfere with power t o r e v i e w advice t h e Lower P l a n n i n g B o a r d has no l e g a l a u t h o r i t y t o local local planning matters. plans The B o a r d has no legal and programs, o r even t o g i v e any t o i t s member m u n i c i p a l i t i e s i f t h e B o a r d i s n o t r e - quested t o do s o . . I t i s stated i n the O f f i c i a l Regional Plan that: . . . each Responsible A u t h o r i t y with i t s agencies, and a n y g r o u p o f R e s p o n s i b l e A u t h o r i t i e s w i t h t h e i r A g e n c i e s , s h a l l comply w i t h t h e R e g i o n a l O b j e c t i v e s , G e n e r a l P o l i c i e s , and Development Area P o l i c i e s o f t h i s P l a n . . . .27 However, i t i s s t i l l Official Regional l o c a l planning i n doubt whether the p r o v i s i o n s o f the P l a n r e a l l y have a n y r e g u l a t o r y power on activities. I b i d . . pp. 7-9. , O f f i c i a l Regional P l a n , op. c i t . , p . 12. 71 The ning appraisal Functions o f the Metropolitan i n regard to C r i t e r i o n Vancouver Area VTI i s t h e r e f o r e Planjudged t o be " p o o r " . III. The for Conclusions Regional D i s t r i c t the various communities i s designed i n a region through t h e i r representatives will t o make i t p o s s i b l e t o work on a common R e g i o n a l B o a r d have c e r t a i n r e s p o n s i b i l i t i e s i n respect blems. I n a s t a t e m e n t made b y t h e M i n i s t e r Affairs of B r i t i s h for It which to regional of Columbia, i t i s s a i d t h a t , combining f u n c t i o n s . together pro- Municipal " i t isa I t i s not a p o l i t i c a l i s f u n c t i o n a l amalgamation i n which a board device amalgamation. i s established 28 to undertake Minister taxing services further authority functions applied and a d m i n i s t e r stated that them j o i n t l y " . "regional districts The do n o t have a n d , e x c e p t f o r h o s p i t a l s , have no s t a t u t o r y b y law"; and " r e g i o n a l districts are not meant t o p a v e t h e way f o r a m a l g a m a t i o n o f m u n i c i p a l i t i e s i n the districts, a l t h o u g h some a m a l g a m a t i o n s s h o u l d t a k e place, t.29 especially that an on t h e Lower M a i n l a n d . the idea attempt t o make l o c a l matters while and p. 6. 2 9 o f the r e g i o n a l still ^ district Therefore, I t i s clear i nBritish governments p a r t i c i p a t e i n r e g i o n a l preserving t h e i r own s t a t u s a s much a s V a n c o u v e r Sun ( V a n c o u v e r ) , September 1 0 , Ibid. Columbia i s 1968, p. 1 72 possible. idea However, i t s h o u l d of r e g i o n a l d i s t r i c t s be mentioned i s good, t h e i r p e n d e n t upon P r o v i n c i a l s t i m u l u s volve local governments i n the legislation, their this i s another issue the The that i s the create frictions local councils." between the i s true a r r a n g e m e n t i s more d e m o c r a t i c , a r e left i n doubt. The . g r e a t e s t problem of planning Vancouver R e g i o n a l D i s t r i c t the Board are remedy l i e s of M u n i c i p a l "it part (the of of 3 0 function. and established w i t h the Affairs has Greater the ibid. or not, the Since of planning on council and ... the whether that are i n the Me- government b o t h the Lower M a i n l a n d Greater Regional under P r o v i n c i a l l e g i s l a t i o n , P r o v i n c i a l Government. stated by idea and questions i n regard to the Minister issue that B o a r d ) would become position, in effect s e c t i o n of The this Vancouver R e g i o n a l D i s t r i c t . changed f r o m i t s p r e s e n t to t h a t Affairs' separation Lower M a i n l a n d R e g i o n a l P l a n n i n g the appointed successful planning Vancouver Area i s the a u t h o r i t y f r o m the Planning are of present regional d i s t r i c t this tropolitan Under the of Municipal Whether t h i s 3 0 de- governments i n - " e l e c t i n g a separate regional d i s t r i c t would be representation Regional Board. Minister the issues. Regional Board D i r e c t o r s Councils. i s that success w i l l t o make l o c a l t h e m s e l v e s more i n r e g i o n a l There that, although an political I t would advisory regional be board, 73 B o a r d " ; a n d " t h e r e s h o u l d he one r e g i o n a l government f o r t h e 31 Lower M a i n l a n d . " enlarging T h i s means t h a t t h e r e i s a p o s s i b i l i t y o f the present jurisdiction o f the G r e a t e r Vancouver Regional D i s t r i c t t o i n c l u d e t h e whole Lower M a i n l a n d R e g i o n 32 of four Regional D i s t r i c t s ^ at present. The d e a d l i n e instead for this change has b e e n s e t b y t h e M i n i s t e r f o r t h e e a r l y 33 1970's. T h i s change hypothesis of this The e v e n t s validity i s s u r e l y welcomed a c c o r d i n g t o the thesis. i n t h e Lower M a i n l a n d o f the hypothesis of this Region support the thesis. Ibid* 32 The f o u r R e g i o n a l D i s t r i c t s i n t h e Lower M a i n l a n d R e g i o n a r e t h e G r e a t e r V a n c o u v e r R e g i o n a l D i s t r i c t , t h e DewdneyA l o u e t t e Regional D i s t r i c t , the C e n t r a l F r a s e r V a l l e y Regional D i s t r i c t , and the Fraser-Cheam R e g i o n a l D i s t r i c t . V a n c o u v e r Sun, l o c . c i t . CHAPTER THE IV METROPOLITAN WINNIPEG AREA M e t r o p o l i t a n W i n n i p e g , s i t u a t e d mid-way b e t w e e n and Vancouver a t the e a s t e r n edge o f Canada's f o u r t h l a r g e s t m e t r o p o l i t a n political, educational, medical and the Prairie area. M e t r o p o l i t a n Winnipeg i s s t i l l an tion, c o m m e r c i a l , a d m i n i s t r a t i v e and industrial as low Since lies wheat e x p o r t s the headquarter center gateway t o t h e c o m m u n i c a t i o n and trade still and lancing o f the o f the 80-mile boundary of U n i t e d west. d a y s , W i n n i p e g ' s economy has culture transporta- base, o f f r e s h w a t e r , and famous g r a i n c o m p a n i e s . almost i n the historic Mani- center f o r f i r s t began t o t r i c k l e been the many w o r l d L a k e W i n n i p e g and the of the such excellent facilities. w e s t , W i n n i p e g has B o a r d and important a varied industrial c o s t power, a l a r g e s u p p l y transportation peg I t has being capital toba, much o f W e s t e r n C a n a d a . region, i s Besides cultural Montreal the C a n a d i a n Wheat Because 1 Winni- c o r r i d o r between S t a t e s , i t has T o d a y , as been i n a l l of i t s drawn s t r e n g t h f r o m i t s l i n e s the f a c i l i t i e s that serve remains important, service industries, from manufacturing, has i n f l u e n c e i n Winnipeg's them. c o n t r i b u t e d an While along of agri- with important ba- economy. A R e p o r t on M e t r o p o l i t a n W i n n i p e g I n d u s t r i a l L o c a t i o n ( W i n n i p e g , The M e t r o p o l i t a n C o r p o r a t i o n o f G r e a t e r W i n n i p e g , P l a n n i n g D i v i s i o n , A u g u s t 25, 1 9 6 4 ) , p . 4 . 75 From t h e p o i n t o f v i e w o f employment and sales, food and p u b l i s h i n g and the value beverage, c l o t h i n g , metal f a b r i c a t i n g , of printing, t r a n s p o r t a t i o n equipment i n d u s t r i e s are Winni- p p e g ' s most s i g n i f i c a n t facturing Because of agriculture, and a major share toward of litan and cent are miscellaneous are manu- l o c a t e d i n downtown the p r o s p e c t i v e e x p a n s i o n there the the gas, of western o i l ,mineral and good g r o u n d s f o r e x p e c t i n g g r o w t h o f w e s t e r n demand w i l l be that channell- Winnipeg. Although coincide per Of d e v e l o p m e n t b a s e d on pulpwood r e s o u r c e s , ed 73*9 industries, Winnipeg. industries. with Area, t h e M e t r o p o l i t a n W i n n i p e g Census A r e a does the p o l i t i c a l the boundaries d i f f e r e n c e i s so purpose, the small p o p u l a t i o n of the o f the entire not Metropo- that, to a l l i n t e n t s Census A r e a may be accepted 4 as and that of the M e t r o p o l i t a n Winnipeg A r e a . future population (please see For 64,511 Table the and I I I on 46 p e r 2 Ibid. 3 Ibid.. next p. 54,665, present table: (76)). page population cent, past, shown i n t h e f o l l i w n g M e t r o p o l i t a n A r e a as 1951-1961 o f the increase growth are The a w h o l e , 54 per cent i n c r e a s e was due to n a t u r a l was due to net migration.-' 9. 1961-1986 ^ M e t r o p o l i t a n Winnipeg P o p u l a t i o n Study: n i p e g , The M e t r o p o l i t a n C o r p o r a t i o n o f G r e a t e r W i n n i p e g , ning D i v i s i o n ) , p. 4. : 5 Ibid., p. or 20. (WinPlan- 76 TABLE I I I THE POPULATION GROWTH I N METROPOLITAN WINNIPEG AREA 1901 Year - 1986* T o t a l Metro. 1901 1921 1931 1941 1951 1956 1961 1966 1971 1986 Population 48,000 227,985 294,905 302,024 356,813 409,687 475,989 508,759 615,000 980,000 M e t r o p o l i t a n Winnipeg P o p u l a t i o n Study: 1961-1986 ( W i n n i p e g : The M e t r o p o l i t a n C o r p o r a t i o n o f G r e a t e r W i n n i peg, P l a n n i n g D i v i s i o n ) , p. 4; and, Greater Winnipeg 1 9 8 l : A S t u d y o f P o p u l a t i o n G r o w t h ( W i n n i p e g : The M e t r o p o l i t a n P l a n n i n g Commission o f G r e a t e r W i n n i p e g , A p r i l , 1 9 5 7 ) , P' 6 . Before in the establishment the Winnipeg Area i n i 9 6 0 , cipal s e r v i c e s were o p e r a t e d commissions. trict, (1927), established The G r e a t e r i n 1913, many o f t h e e s s e n t i a l inter-muni- by s i n g l e - p u r p o s e b o a r d s and W i n n i p e g Water D i s - The M o s q u i t o Abatement Winnipeg S a n i t a r y D i s t r i c t (1951), Defence Board (1953). Corporation Among them were The G r e a t e r Metropolitan Planning ssion o f the M e t r o p o l i t a n Commission District ( 1 9 3 5 ) , The ( 1 9 4 9 ) , The M e t r o p o l i t a n a n d The G r e a t e r Winnipeg T r a n s i t Civil Commi- 6 M e t r o p o l i t a n W i n n i p e g ( W i n n i p e g , The M e t r o p o l i t a n p o r a t i o n o f G r e a t e r Winnipeg), p . 1. Cor- METROPOLITAN CORPORATION OF GREATER WINNIPEG PLANNING DIVISION u 78 I n 1955, blished for an the investigating metropolitan report Provincial commission to i n q u i r e i n t o government. i n 1959' In this services. troduced by the idea. The received 1960.^ Bill the The had The first ber 26, The of the the the was spring b o a r d s and along with by Corporation planning matters then i n legislative on M a r c h commissions other listed above were assumed by s e r v i c e s which i s a l s o the t h e r e f o r e , the Greater 26, e l e c t e d on Wednesday, in this Winnipeg i s regarded ment a u t h o r i t y o f t h e many the pre- the m u n i c i p a l i t i e s themselves. C o u n c i l was Metropolitan Greater establish- recommendations h e l d i t s i n a u g u r a l meeting the f o l l i w n g thesis, its c o n t r o l over Lieutenant-Governor been a d m i n i s t e r e d this need rejected i t s eight-city their responsibilities Corporation, charge o f the In of Metropolitan and the t h r o u g h t h e M a n i t o b a L e g i s l a t u r e , and single-purpose were d i s s o l v e d , and viously Government i n t h e commission, but passed assent Metropolitan government w i t h I t i n c o r p o r a t e d many o f investigating esta- commission p r e s e n t e d M e t r o p o l i t a n Winnipeg B i l l Provincial i960. s e s s i o n of of the The This r e p o r t , i t recommended t h e ment o f a s t r o n g m e t r o p o l i t a n public Government o f M a n i t o b a as Winnipeg Octog Monday. authority i n Area. Metropolitan Corporation the m e t r o p o l i t a n govern- Area. 'S. George R i c h , " P l a n n i n g i n M e t r o p o l i t a n W i n n i p e g " , Community P l a n n i n g R e v i e w . V o l . X I I , No. 2 ( 1 9 6 2 ) , p . 2 2 . Q The M e t r o p o l i t a n t r o p o l i t a n W i n n i p e g , op. Corporation of Greater c i t . , p. 13• Winnipeg, Me- 79 I. The M e t r o p o l i t a n . G o v e r n m e n t A u t h o r i t y • Organization. The Metropolitan peg operates under Corporation operates with standing the council-committee under ponds t o e a c h s t a n d i n g of G r e a t e r system: t h a t i s , the An a d m i n i s t r a t i v e d i v i s i o n committee. is responsible to a chief administrative o f f i c e r , of next known as t h e A detailed description o r g a n i z a t i o n c a n be J a n u a r y 1, 1961, assumed r e s p o n s i b i l i t y seen i n the F i g u r e the M e t r o p o l i t a n f o r the t r a n s i t defence, parks, abatement, zoning, the zoo, m u n i c i p a l b u i l d i n g permits, assumed as m e t r o p o l i t a n tropolitan traffic street jurisdiction The government and golf on s e r v i c e s on A p r i l 1, 1961. o f the M e t r o p o l i t a n Metropolitan Ibid., p. 12. The mosqui- 1, 1961; and and the me- arterial Weed C o n t r o l came, u n d e r Council i n A p r i l , Corporation government. supply assessment. courses, i s the s i n g l e a u t h o r i t y i n M e t r o p o l i t a n Winnipeg. general-purpose officially and i n s p e c t i o n s were system, i n c l u d i n g b r i d g e s c o n t r o l on May Council system, the water sewage d i s p o s a l s y s t e m , a r e a p l a n n i n g , Civil to who page. On and e a c h o f w h i c h has a d i r e c t o r o f the C o r p o r a t i o n . the C o r p o r a t i o n ' s corres- administrative function organized director divisions, The is executive Winni- the d i r e c t i o n o f the e l e c t e d c o u n c i l committees. into Corporation 1965. the 9 metropolitan I t i s also a a p p r a i s a l of t h i s Metropoli- CHAIRMAN ANO COUNCIL (CONSULTATIVE COMMITTEEJ- ___J MUNICIPAL BOARD L.. PUBLIC UTILITIES BOARD "I PERSONNEL COMMITTEE FINANCE COMMITTEE STREETS AND TRANSIT COMMITTEE PLANNING COMMITTEE I PARKS AND PROTECTION COMMITTEE V/ATER AND SEWER COMMITTEE EXECUTIVE DIRECTOR CORPORATION SOLICITOR ft SECRETARY BY-LAWS CONTRACT* CLAIMS EXPROPRIATIONS DIRECTOR OF ASSESSMENT REAL PROPERTY COMMERCIAL INDUSTRIAL ASSESSMENT OIRECTOR OF FINANCE a TREASURER ACCOUNTING ANO TREASURY RESEARCH PURCHASING LITIGATIONS LEGISLATION DIRECTOR OF PLANNING AREA PLANNING SUBDIVISION APPROVAL ZONING BUILDING PERMITS BWLMNG.aECT'L, AND PUIM8ING INSPECTIONS. CLERK OF THE COUNCIL DIRECTOR OF STREETS AND TRANSIT MAINTENANCE, CONSTRUCTING, AND TRAFFIC CONTROL ON> TRANSIT SYSTEM, MAJOR S T R E E T S , BRIDGES AND SUBWAYS* INFORMATION OFFICER DIRECTOR OF WATER AND SEWER WATER SUPPLY (WHOLESALE) TREATMENT AND DISPOSAL OF SEWAGE DIRECTOR OF PARKS AM) PROTECTION METRO PARKS Z O O , METRO GOLF COURSES CIVIL D E F E N C E M030UIT0 ABATEMENT WEED CONTROL PERSONNEL DEPARTMENT L C O END — Source: The K e t r o p o l i t a n C o r p o r a t i o n o f G r e a t e r W i n n i p e g , I968 BASIC ADMINISTRATION CONSULTATION ••••• ORGANIZATION APPEAL 81 t a n W i n n i p e g Government A u t h o r i t y i n r e g a r d is therefore judged L e g a l Powers« t o the C r i t e r i o n I t o be " e x c e l l e n t " . The M e t r o p o l i t a n W i n n i p e g A c t a s s i g n s t h e f o l l i w n g f u n c t i o n s , powers, and r e s p o n s i b i l i t i e s t o the Cor- poration: A. A s s e s s m e n t on a u n i f o r m b a s i s o f a l l property f o r metro- p o l i t a n purposes and f o r the purposes o f l o c a l B. The s u p p l y , storage, distribution palities C. treatment, pressure, taxation; and a r t e r i a l o f w a t e r t o a r e a m u n i c i p a l i t i e s (The m u n i c i - are responsible f o r l o c a l distribution); Sewage c o l l e c t i o n a n d d i s p o s a l , n o t i n c l u d i n g l o c a l collection; D. P u l b i c t r a n s p o r a t i o n , major s t r e e t s and b r i d g e s , ing traffic includ- control; E. Major parks, municipal P. Civil G. Mosquito E. Weed I. The A c t a l s o p r o v i d e s golf courses, zoo; defence; abatement; control; bility f o r eventual metropolitan responsi- f o r g a r b a g e and r e f u s e d i s p o s a l , a n d c e r t a i n u n d e r t h e R i v e r s a n d S t r e a m s A c t when p r o c l a i m e d Lieutenant-Governor-in-Council. by the 1 0 In e x e r c i s i n g the Corporation's powers, i t i s p r o v i d e d under S e c t i o n 7 o f the M e t r o p o l i t a n Winnipeg A c t t h a t : Ibid., p. 7. powers 82 Without r e s t r i c t i n g the a u t h o r i t y of the m e t r o p o l i t a n c o u n c i l t o c o n s i d e r r e s o l u t i o n s on any s u b j e c t o r m a t t e r , t h e powers o f t h e c o r p o r a t i o n may be e x e r c i s e d e i t h e r by b y - l a w o r by r e s o l u t i o n o f t h e c o u n c i l , e x c e p t where, by t h i s * A c t o r any. o t h e r A c t . o f - t h e L e g i s l a t u r e o r by a g e n e r a l b y - l a w o f t h e c o r p o r a t i o n r e g u l a t i n g the p r o c e e d i n g s o f t h e c o u n c i l , a power i s s p e c i f i c a l l y r e q u i r e d t o be e x e r c i s e d by b y - l a w . The municipal Corporation borrowing. Corporation's of the 1 1 has no c o n t r o l over education Another l i m i t a t i o n Winnipeg Act over in exercising powers i s s t a t e d u n d e r S u b s e c t i o n Metropolitan or 7, the Section 83 that: N o t w i t h s t a n d i n g any o t h e r p r o v i s i o n o f t h i s A c t , e x c e p t by t h e e n a c t m e n t o f the m e t r o p o l i t a n d e v e l o p m e n t p l a n o r by a l a n d use b y - l a w p a s s e d t o implement t h a t p l a n , the c o r p o r a t i o n s h a l l not e n a c t a by-law t h a t would have t h e e f f e c t o f c h a n g i n g t h e use t o w h i c h any l a n d i n t h e a d d i t i o n a l zone m i g h t be p u t u n l e s s t h e c o u n c i l o f t h e m u n i c i p a l i t y i n w h i c h t h e l a n d i s s i t u a t e d h a s , by r e s o l u t i o n , c o n s e n t e d to the change. The Authority a p p r a i s a l of i n regard to the Metropolitan Criterion Winnipeg II i s therefore Governmental judged to be "good". Control. Under S u b s e c t i o n Winnipeg Act, shall Section 7." As metropolitan be to the Rich, Section i t i s stated that c o u n c i l f o r the poration 1, exercised the v o t i n g power o f op_. c i t . , p. 23. of "There s h a l l area; by 10 and the be Metropolitan a metropolitan powers o f c o u n c i l as the the the provided members o f the cor- in Metropolitan 83 Council, i t i s provided under S u b s e c t i o n 2 , S e c t i o n 13 o f t h e same A c t t h a t : E a c h member o f t h e c o u n c i l ( i n c l u d i n g t h e c h a i r m a n e x c e p t where t h e c o u n c i l c o n s i s t s o f e l e v e n members) has one v o t e on e a c h q u e s t i o n t o be d e c i d e d b y t h e c o u n c i l ; b u t i n the event o f a t i e v o t e , whether t h e c o u n c i l c o n s i s t s o f t e n o r e l e v e n members, t h e c h a i r man h a s a n a d d i t i o n a l o r c a s t i n g v o t e . The first Metropolitan C o u n c i l , c o n s i s t i n g o f t e n mem- b e r s , was e l e c t e d o n O c t o b e r 2 6 , I 9 6 0 f o r a t e r m o f f o u r years, and t h e s e c o n d was e l e c t e d o n O c t o b e r 2 8 , 1 9 6 4 f o r a t e r m o f two years. year Present l e g i s l a t i o n provides terms o f . o f f i c e . appointed The f i r s t by the P r o v i n c i a l Subsequent f o r subsequent two- C h a i r m a n o f t h e C o u n c i l was Government f o r a f o u r - y e a r term. c h a i r m a n a r e e l e c t e d b y t h e C o u n c i l w h i c h may s e l e c t 12 one o f i t s own members, o r a f o r m e r In selected chairman. the M e t r o p o l i t a n Winnipeg Area, by d i r e c t election to Council. the c o u n c i l l o r s are For electoral the M e t r o p o l i t a n Area i s d i v i d e d i n t o ber o f the C o u n c i l i s e l e c t e d by the e l e c t o r s o f each Each e l e c t o r a l division The of One memdivision. i s composed o f a p a r t o f t h e c e n t r a l C i t y o f Winnipeg and p a r t s palities. ten divisions. purposes o f one o r more o f t h e o t h e r Thus e a c h d i v i s i o n cuts across municipal munici- boundaries. v o t e r s o f the C i t y o f Winnipeg form a m a j o r i t y i n f i v e o f the d i v i s i o n s , and suburban v o t e r s form a m a j o r i t y i n the The M e t r o p o l i t a n C o r p o r a t i o n t r o p o l i t a n Winnipeg, op. c i t . , p . 9 . o f Greater W i n n i p e g , Me- 84 other five. 13 d i r e c t l y by Therefore, Greater place from 1964, month. on the and The c o u n c i l members a r e e l e c t e d Winnipeg c i t i z e n s Nomination of takes the candidates first t o the an even b a s i s . Metropolitan Wednesday o f O c t o b e r e v e r y e l e c t i o n s are members t a k e on on the office on Council two years f o u r t h Wednesday o f the first the Tuesday immediate - 14 ly f o l l o w i n g the Every citizen eligible eligible to vote The Authority d e c l a r a t i o n o f the r e s u l t s to vote i n one o f the i n his municipal metropolitan elections is division. a p p r a i s a l of the M e t r o p o l i t a n Winnipeg i n regard to C r i t e r i o n election. Government III i s therefore judged to be "excellent". Local Governments and Corporation was covered entire of the newly e s t a b l i s h e d i n s i x o t h e r s , and nineteen Their Functions. area of ten cities When t h e I960, the a Corporation or m u n i c i p a l i t i e s , small p a r t s of another government u n i t s , w i t h Metropolitan total three—a area o f 256 total most of square 15 miles, and In rural with 1964, a p o p u l a t i o n of n e a r l y a h a l f - m i l l i o n people. another amendment removed p o r t i o n s o f m u n i c i p a l i t i e s from w i t h i n the m e t r o p o l i t a n reducing the number o f m u n i c i p a l i t i e s t o f o u r t e e n . 1 3 Ibid. 1 4 Ibid.. p. 10. •^Rich, Loc. c i t , five boundaries, It was y 85 acknowledged t h a t these some l a t e r date sent there time, metropolitan likely three the and included again At 1 are eleven m u n i c i p a l i t i e s wholly boundaries. They a r e East the Kildonan, suburban m u n i c i p a l i t i e s of P o r t Kildonan; w o u l d be when u r b a n d e v e l o p m e n t r e q u i r e s i t . ^ James, S t . B o n i f a c e , the areas the cities within Garry, towns o f Tuxedo and boundaries are the Old Kildonan, Brooklands* St. Transcona; The s u b u r b a n m u n i c i p a l i t i e s w h i c h have l a r g e a r e a s metropolitan pre- of Winnipeg, West K i l d o n a n , at North other within the m u n i c i p a l i t i e s of S t . Vital, C h a r l e s w o o d , and A s s l n i b o i a . All after the fourteen m u n i c i a p l i t i e s maintained establishment However, t h e y assigned are by to the regarded the have l o s t as Authority tion Corporation been C o r p o r a t i o n because these c a n be i960. in functions b e t t e r performed Corporation. a p p r a i s a l o f the i n regard status c e r t a i n f u n c t i o n s w h i c h have M e t r o p o l i t a n W i n n i p e g Government to C r i t e r i o n IV The 166.60 s q u a r e m i l e s . can Metropolitan i n t e r - m u n i c i p a l , and G e o g r a p h i c Adequacy. covers the Metropolitan Metropolitan The of their i s J u d g e d t o be "fair". M e t r o p o l i t a n Winnipeg Area However, t h e proper Metropolitan Corpora- a l s o e x e r c i s e c e r t a i n powers w i t h i n t h e a d d i t i o n a l 17 zone w h i c h c o v e r s Fourth 492.86 square m i l e s . Therefore, The M e t r o p o l i t a n C o r p o r a t i o n o f t h e G r e a t e r A n n u a l R e p o r t . 1964 (Winnipeg, 1965), p. 2. the total Winnipeg, 17 The a d d i t i o n a l zone i s an a r e a o f l a n d some f i v e i n d e p t h e x t e n d i n g b e y o n d and e n c i r c l i n g t h e m e t r o p o l i t a n dary. 1 miles boun- 86 area under the c o n t r o l o f the C o r p o r a t i o n i s 659.46 square miles. U n d e r t h e M e t r o p o l i t a n D e v e l o p m e n t P l a n , w h i c h was : adopted in i n April of 1968, no u r b a n e x p a n s i o n will be permitted t h e a d d i t i o n a l zone w i t h i n t h e t e r m o f t h e P l a n , e x c e p t f o r some low d e n s i t y e x p a n s i o n The Authority o f some e x i s t i n g villages. a p p r a i s a l o f the M e t r o p o l i t a n Winnipeg i n regard to Criterion V i s therefore Government j u d g e d t o be "excellent". t II. Part effective The M e t r o p o l i t a n a n d L o c a l P l a n n i n g I V o f t h e M e t r o p o l i t a n W i n n i p e g A c t w h i c h became on A p r i l 1, 1961 made t h e M e t r o p o l i t a n the planning the a d m i n i s t r a t i o n of zoning, b u i l d i n g , p l u m b i n g and of s u b d i v i s i o n of land. had p r e v i o u s l y b e e n t h e r e s p o n s i b i l i t i e s various m u n i c i p a l i t i e s independently. litan not Planning Commission, an a d v i s o r y board a l l the area "These / _ ; : of the o f w h i c h some b u t m u n i c i p a l i t i e s had b e e n members, on J a n u a r y 1, 1961. s i o n of the C o r p o r a t i o n was i n i t i a l l y staffed of employees from the M e t r o p o l i t a n P l a n n i n g from the Zoning, electrical The work o f t h e M e t r o p o - by t h e C o r p o r a t i o n over Corporation a u t h o r i t y f o r t h e whole o f t h e a r e a , i n c l u d i n g by-laws, and the a p p r o v a l functions Functions was taken The P l a n n i n g Divi- by t h e t r a n s f e r Commission, and- B u i l d i n g , Plumbing and E l e c t r i c a l Inspection 87 Staffs of area m u n i c i p a l i t i e s . At is and the p r e s e n t organized i n t o three (2) the work o f branches: (1) the the Planning D i v i s i o n Department o f D e p a r t m e n t o f I n s p e c t i o n and which i s i n charge of c o n t r o l s ; and, 140 employees i n the Control. Planning D i v i s i o n . This same S e c t i o n t h a t subject to t h i s discharge c o u n c i l o r by exercise 1, S e c t i o n 23 "the A c t and to the o f The the Act." be of council the the of the 2 of citizens matters the (l),.is council, imposed upon him I t i s c l e a r t h a t the may corpora- under s u b s e c t i o n t h e i r a u t h o r i t y on a l l m e t r o p o l i t a n Metropolitan are Metropolitan business a u t h o r i t y of s u c h d u t i e s as may land There i s f u r t h e r s t a t e d under S u b s e c t i o n "a p e r s o n a p p o i n t e d this Control, 1 9 metropolitan t o c a r r y on range enforcement of such a d m i n i s t r a t i v e o f f i c e r s i t deems n e c e s s a r y corporation." and Research Planning administrative services. i t i s stated that by-law appoint shall the Under S u b s e c t i o n Winnipeg Act, t i o n as current planning (3) use the time, the Program Development, which i s r e s p o n s i b l e f o r l o n g planning; by 1o and by the can through Council. l8 S i x t h A n n u a l R e p o r t . 1966 ( W i n n i p e g : The M e t r o p o l i t a n C o r p o r a t i o n of the G r e a t e r Winnipeg, 1967), p. F-17' T h i s i n f o r m a t i o n i s d e r i v e d f r o m the answer o f the q u e s t i o n n a i r r e w h i c h were s e n t tq~) P l a n n i n g D i v i s i o n o f the M e t r o p o l i t a n C o r p o r a t i o n of Greater Winnipeg i n J u l y , 1968. 1 9 88 The the employees a u t h o r i t y of ment o f the the the 1, Planning Metropolitan D i r e c t o r o f the under S u b s e c t i o n Act of D i v i s i o n are Council. Planning As Division, S e c t i o n 2 5 o f The a l s o under t o the i t is Metropolitan appointsaid Winnipeg that: . . . the c o u n c i l may a p p o i n t a p e r s o n t o h a v e , s u b j e c t a s h e r e i n p r o v i d e d , s u p e r v i s i o n o v e r , and a u t h o r i t y i n r e s p e c t o f , that s e r v i c e , f a c i l i t y , or system . . . . The employees of the Planning Metropolitan Corporation. the that: same A c t D i v i s i o n are This a l s o e m p l o y e d by i s provided the u n d e r S e c t i o n 86 of The c o r p o r a t i o n s h a l l e s t a b l i s h a D e p a r t m e n t o f P l a n n i n g as p a r t o f i t s a d m i n i s t r a t i v e o r g a n i z a t i o n , and s h a l l employ s u c h p l a n n e r s , p l a n n i n g o f f i c e r s , •_ a s s i s t a n t s , i n s p e c t o r s , and e m p l o y e e s as a r e ne.c e s s a r y t o e n a b l e t h e c o r p o r a t i o n t o d i s c h a r g e the d u t i e s and e x e r c i s e the powers c h a r g e d o r c o n f e r r e d upon i t u n d e r t h i s P a r t . - Therefore, the ning matters The Functions Local a p p r a i s a l of i n regard to Metropolitan the Functions. Metropolitan Corporation I t was i s the stated earlier Metropolitan Winnipeg, which i s r e s p o n s i b l e matters of a planning Winnipeg Area City, is a nature. Planning "good". t h a t the s o l e a u t h o r i t y i n charge of D e p a r t m e n t o f U r b a n R e n e w a l and n e w a l schemes i n the plan- Council. C r i t e r i o n I I I i s j u d g e d t o be n i n g m a t t e r s w i t h i n the the have c o n t r o l o f a l l m e t r o p o l i t a n through the Planning tropolitan citizens Winnipeg Area. Housing of the f o r the p r e p a r a t i o n local This plan- However, City of of urban agency d e a l i n g local Me- Department with works re- 89 closely with the Planning Division of the M e t r o p o l i t a n Corpora- 20 tion on u r b a n r e n e w a l s t u d i e s i n t h e C i t y o f W i n n i p e g . ever, there i s no l o c a l planning establishment other How- than the D e p a r t m e n t o f U r b a n Renewal a n d H o u s i n g o f t h e C i t y of Winnipeg in work t h e whole M e t r o p o l i t a n A r e a , p e r f o r m e d by t h e M e t r o p o l i t a n The Functions appraisal i n regard a l l of the p l a n n i n g being Corporation. o f the M e t r o p o l i t a n Winnipeg Area to C r i t e r i o n IV i s therefore Planning j u d g e d t o be "poor". G e o g r a p h i c Adequacy. The M e t r o p o l i t a n C o r p o r a t i o n has n o t only the s o l e a u t h o r i t y i n the M e t r o p o l i t a n Area proper but also i n the a d d i t i o n a l powers. in zone i n t e r m s o f e x e r c i s i n g The a d d i t i o n a l depth extending boundary. zone i s a n a r e a i n order this area area c o u l d be c o n t r o l l e d . exception i s given planning jurisdiction Ad m e n t i o n e d e a r l i e r , time i s envisaged o f some p l a n n e d low-density miles the m e t r o p o l i t a n t h a t d e v e l o p m e n t on t h e f r i n g e velopment a t the p r e s e n t the o f l a n d some f i v e beyond and e n c i r c l i n g The C o r p o r a t i o n i t s planning over of the urban no u r b a n d e - f o r this area with d e v e l o p m e n t i n and 21 around e x i s t i n g The Functions op. village appraisal i n regard communities. o f the M e t r o p o l i t a n Winnipeg Area to C r i t e r i o n V i s therefore Metropolitan c i t . , p . 9« Corporation, Planning j u d g e d t o be S i x t h Annual Report. 1966. 21 The M e t r o p o l i t a n C o r p o r a t i o n o f G r e a t e r W i n n i p e g , P l a n n i n g D i v i s i o n , D r a f t Development P l a n o f Winnipeg (Winnipeg, 1963), p. 33. 90 "excellent". Metropolitan Division vincial Planning Functions. o f the M e t r o p o l i t a n Corporation of the Planning are provided L e g i s l a t i o n s and by t h e M e t r o p o l i t a n s t a t e d under S u b s e c t i o n nipeg The d u t i e s by P r o - Council. This i s 3 , S e c t i o n 8 6 o f the M e t r o p o l i t a n Win- Act that: Planners, planning o f f i c e r s , a s s i s t a n t s , inspectors and e m p l o y e e s i n t h e D e p a r t m e n t o f P l a n n i n g s h a l l d i s charge such d u t i e s , i n a d d i t i o n t o those s t a t e d h e r e i n , as a r e p r e s c r i b e d by t h e M e t r o p o l i t a n C o u n c i l . At the present time, the major f u n c t i o n s o f the P l a n n i n g Divi- sion are: A. preparation and i m p l e m e n t a t i o n o f the Development B. p r e p a r a t i o n and i m p l e m e n t a t i o n o f the M e t r o p o l i t a n Plan; Zoning By-law; C. b u i l d i n g , plumbing, and e l e c t r i c a l inspections; D. development p l a n E. i s s u e o f b u i l d i n g , plumbing, and e l e c t r i a l p e r m i t s , and examination; occupancy c e r t i f i c a t e s ; and F. current planning including subdivision control, re-zoning, 22 and Board of Adjustment. The of s t u d i e s w h i c h have b e e n made d u r i n g the Corporation formation cover ,i cit. o f the M e t r o p o l i t a n such subjects 22 a r e many, a n d p r o v i d e as s c h o o l , the past years a sound b a s i s f o r t h e Development P l a n . These the c e n t r a l business studies district, • • .' I n f o r m a t i o n f r o m the, answer o f t h e q u e s t i o n n a i r r e , * • • loc. 91 new m e t r o p o l i t a n b a s e maps, p o p u l a t i o n , metropolitan n e w a l , p a r k s and r e c r e a t i o n , m e t r o p o l i t a n river bank d e v e l o p m e n t , i n d u s t r i a l new m e t r o p o l i t a n zoning part o f the M e t r o p o l i t a n i n more d e t a i l and provide the f u t u r e Area. guidance These p l a n s town c e n t e r s , to the area being t o be c o m p l e t e d f o r as s c h o o l s , p a r k s , shopping centers, g i v e more s p e c i f i c plans are also l a n d use c h a r a c t e r i s t i c s f o r such things neighborhood transportation, d e v e l o p m e n t , l a n d use r e c o r d s , by-law, e t c . S t u d i e s undertaken t o enable d e t a i l e d area every area urban r e - will define of the area, r e g i o n a l and e t c . , and a l s o m u n i c i p a l i t i e s on t h e 23 future development o f t h e i r It communities. i s s t a t e d under S u b s e c t i o n 1, S e c t i o n 79 o f t h e M e t r o - politan Winnipeg A c t t h a t : A f t e r t h e c o m i n g i n t o f o r c e o f t h i s s e c t i o n , t h e met r o p o l i t a n c o u n c i l s h a l l , s u b j e c t as h e r e i n p r o v i d e d , as s o o n a s i t i s p r a c t i c a b l e , c a u s e t o be p r e p a r e d and approved and by by-law e s t a b l i s h , a p l a n . and under Subsection which s h a l l in general land." pared and 2 o f t h e same S e c t i o n t h a t be a t t a c h e d terms, s h a l l t o and f o r m p a r t "the p l a n , o f the by-law . . ., e s t a b l i s h the p a t t e r n o f f u t u r e use o f The p r e l i m i n a r y r e p o r t on t h e D e v e l o p m e n t P l a n was i n November, 1 9 6 1 ; 1964. The M e t r o p o l i t a n 1966 a n d was o f f i c i a l l y hearings, and t h e D r a f t D e v e l o p m e n t P l a n i n 1963 D e v e l o p m e n t P l a n was p r e p a r e d a d o p t e d on A p r i l 11, pre- in 1968 a f t e r many s t u d i e s and r e v i s i o n s . -'The Metropolitan M e t r o p o l i t a n C o r p o r a t i o n o f G r e a t e r W i n n i p e g , The Development P l a n (Winnipeg, A p r i l , 1 9 6 8 ) . 92 The is broad to secure and this description broad purpose i n t o o f the courses area objectives. with c e n t e r and a c l e a r l y pattern a h e a d t w e n t y t o twen- have r e a c h e d M e t r o p o l i t a n Development P l a n Metropolitan area, urban design industrial and f i s c a l t r o p o l i t a n Area w i l l about Metropolitan Since follow after A zoning adoption b y - l a w f o r t h e Meo f the P l a n . ^ but constantly chang- Division's effort i s tasks, i n v o l v i n g the processing of f o r new d e v e l o p m e n t , r e n o v a t i o n s , Ibid. The C o u n c i l deems d e s i r a b l e . to current planning IMd. space, o r amended f r o m t i m e t o t i m e a s a community i s n e v e r s t a t i c , 24 f o r the l a n d , t r a n s p o r t a t i o n , open i n g a n d g r o w i n g , much o f t h e P l a n n i n g applications c o n s i s t s of the f o l l o w - development, c e n t e r s policies. P l a n may b y b y - l a w be a l t e r e d 2 5 defined urban connected by e f f i c i e n t I t looks when t h e p o p u l a t i o n w i l l i n g major e l e m e n t s : r e s i d e n t i a l devoted of 2 4 The the t h a t have t o o f government f o r t h e a t t a i n m e n t w o r k i n g and commercial a r e a s years 780,000. " o b j e c t i v e s " f o l l o w e d by a of a c t i o n or " p o l i c i e s " economical s e r v i c e systems. ty-five The P l a n The P l a n i s a i m e d a t a c h i e v i n g a compact a concentrated of l i v i n g , Plan development w i t h i n the Metropolitan Area. f o l l o w e d by a l l l e v e l s the and and promote o r d e r l y growth, economic d e s i r a b l e amenities translates be purpose o f t h e M e t r o p o l i t a n Development re-zonings, sub- 93 divisions, and a l l of those matters r e l a t i v e to the p h y s i c a l 26 growth of the community. Because the M e t r o p o l i t a n n i n g a u t h o r i t y i n the Division Corporation i s the M e t r o p o l i t a n Winnipeg Area, i s r e s p o n s i b l e f o r a l l planning matters The Functions a p p r a i s a l of the i n regard single the Planning in this M e t r o p o l i t a n Winnipeg Area t o C r i t e r i o n VI paln- Area. Planning i s t h e r e f o r e judged to be "excellent". Legal the Powers. I t i s s t a t e d under Subsection M e t r o p o l i t a n Winnipeg Act 1, S e c t i o n 83 of that: . . . t h e c o r p o r a t i o n has e x c l u s i v e a u t h o r i t y i n t h e m e t r o p o l i t a n a r e a and o t h e r t h a n d w e l l i n g s l o c a t e d i n areas zoned f o r a g r i c u l t u r a l uses f o r the purpose of t h e a d m i n i s t r a t i o n and e n f o r c e m e n t o f t h e p l a n ; and f o r t h a t p u r p o s e and f o r t h e p u r p o s e o f d e v e l o p i n g any f e a t u r e o f The M e t r o p o l i t a n D e v e l o p m e n t P l a n , t h e met r o p o l i t a n c o u n c i l may e n a c t b y - l a w s , h a v i n g f o r c e i n b o t h o r e i t h e r t h e m e t r o p o l i t a n a r e a and t h e a d d i t i o n a l zone, o r i n p a r t s o f b o t h o r e i t h e r the m e t r o p o l i t a n a r e a and t h e a d d i t i o n a l z o n e , . . . The Functions a p p r a i s a l of i n regard the M e t r o p o l i t a n Winnipeg Area to C r i t e r i o n VII i s therefore Planning judged t o be "excellent". III. I n the i n t r o d u c t i o n to B i l l Metropolitan Corporation Roblin i n part: op« said, cit., Conclusions Metropolitan p . 9. of Greater Corporation, 62, an Act to e s t a b l i s h Winnipeg, Premier the Duff S i x t h Annual Report, 1966, 94 The p r i n c i p l e on w h i c h t h i s B i l l r e s t s c o n s i s t s o f two r a t h e r s i m p l e t h o u g h t s . F i r s t o f a l l , t h a t we s h o u l d develop a c e n t r a l p l a n n i n g a u t h o r i t y f o r t h i s m e t r o p o l i t a n a r e a t h a t would be c h a r g e d with, t h e r e s p o n s i b i l i t y o f p r o v i d i n g a u n i f i e d development p l a n . And s e c o n d l y , t h a t we s h o u l d a l s o p r o v i d e f o r t h e c e n t r a l c o n t r o l o f c e r t a i n e s s e n t i a l s e r v i c e s t o t h e p u b l i c w i t h i n t h i s same u r b a n area . . . .^7 It i s clear tion t h a t the establishment of Greater portance c o u l d n o t be r e a l i s e d Manitoba P r o v i n c i a l The Planning the a n d c o - o r d i n a t i o n between p l a n - government f u n c t i o n s . establishments without Government i n t h e y e a r s preceeding the i n i960. M e t r o p o l i t a n D e v e l o p m e n t P l a n was p r e p a r e d Corporation. tell achievement on t h e p a r t o f t h e Corporation i n co-ordination with I t typified a l l other the i n t e r - d i v i s i o n a l which t h e a d m i n i s t r a t i o n has been a b l e to However, t h i s a great e f f o r t o f the M e t r o p o l i t a n Division planners, super-impose specialists the plans by the divisions of team-work to establish. t h e r e f o r e , a c t as c o - o r d i n a t o r s . other Corpora- W i n n i p e g was due t o t h e r e c o g n i t i o n o f t h e i m - o f area-wide p l a n n i n g n i n g and other of the Metropolitan The T h e y do n o t a t t e m p t what t o d o , b u t r a t h e r a t t e m p t t o prepared by the i n d i v i d u a l sepecialists, 28 and t o make s u r e The peg planning Act departs cit., t h a t t h e edges o f t h e s e concept Rich, match. i n the Metropolitan from the North American t r a d i t i o n 'Metropolitan p . 3• 28 contained plans Winni- i n one i m - C o r p o r a t i o n , M e t r o p o l i t a n Winnipeg, op. op_. c i t . , p . 2 7 . 95 portant tion way: i t does n o t i n c o r p o r a t e d i r e c t i n the f o r m u l a t i o n o f p l a n n i n g provide f o r a p l a n n i n g board appointed policies; or a planning c i t i z e n membership. r a t h e r i t has s e r v e d ponsibility of the three to c l a r i f y participa- a n d i t does n o t commission However, t h i s . d o e s c i t i z e n p a r t i c i p a t i o n has been i g n o r e d but citizen with n o t mean t h a t or considered unnecessary, and d e f i n e t h e a r e a s groups o f p a r t i c i p a n t s , of res- the planners, 29 the p o l i t i c i a n s and the c i t i z e n s , However, a n i m p o r t a n t functions i n the planning short-coming o f the p l a n n i n g i n the M e t r o p o l i t a n Winnipeg Area i s the e l i m i n a t i o n of the l o c a l planning function. Metropolitan Corporation, for a l l planning matters The P l a n n i n g consequently, i n this is examination D i v i s i o n of the h a s t o be r e s p o n s i b l e M e t r o p o l i t a n Area, p r e p a r a t i o n o f l o n g range p l a n n i n g p o l i c i e s the process. and o b j e c t i v e s t o o f plumbing and b u i l d i n g p e r m i t s , t o o b i g ; and, t h e r e f o r e , the p l a n n i n g have t o d e v o t e much o f t h e i r p r e c i o u s from the staff etc. The t a s k of the D i v i s i o n time t o d e a l i n g w i t h m a t t e r s w h i c h c a n be p r o p e r l y assumed b y l o c a l p l a n n i n g This i s highly undesirable according t o the hypothesis these bodies. of this thesis. It i s a l s o s t a t e d i n t h e M e t r o p o l i t a n Development that the e f f e c t i v e tive a c t i o n s by the P r o v i n c i a l to p o l i c i e s 2 9 implementation and s t a n d a r d s Ibid. o f the Plan requires Government. Plan legisla- These a c t i o n s relate f o r p r o v i d i n g open s p a c e , p a r k s and 96 school sites, urban renewal, i n d u s t r i a l banks, r e f u s e features into d i s p o s a l , design of the f o r c e and Plan, in effect p r o v e more e f f i c i e n t tropolitan and and responsibilities, matters. When t h e Metropolitan t o r e v i e w and Winnipeg Act river- control, land acquisition f o r ' fiscal i n the development, than to take is put A r e a , i t might re-draft Part which r e l a t e s to the Plan IV of the planning Me- function i n d e p e n d e n t a c t i o n on each 30 of these All matters. the e v e n t s w h i c h have o c c u r r e d Winnipeg Area a l s o The Metropolitan justify the hypothesis i n the of this Metropolitan Corporation of Greater Development P l a n , l o c . c i t . Metropolitan thesis. Winnipeg, The CHAPTER V THE METROPOLITAN TORONTO AREA Metropolitan Toronto, is situated tario. ter largest metropolis, i n s o u t h e r n O n t a r i o on t h e n o r t h s h o r e M e t r o p o l i t a n Toronto i s the f a s t e s t o f Lake On- growing i n Canada i n terms o f p o p u l a t i o n i n c r e a s e . capital is Canada's s e c o n d urban Toronto cen- i s the o f t h e P r o v i n c e o f O n t a r i o , and t h e M e t r o p o l i t a n a r e a also a center of industry, commerce, c u l t u r e , a n d f o r e i g n trade. B e i n g a l a r g e m e t r o p o l i s , Toronto produces forms s e r v i c e s lation b u t f o r a l l o f Canada. p o l i t a n Toronto about of great d i v e r s i t y , goods a n d p e r - not o n l y f o r the l o c a l I n 1961 Census A r e a amounted popu- employment i n t h e M e t r o - to 7 8 9 , 6 5 1 , w h i c h was 43 p e r c e n t o f i t s t o t a l p o p u l a t i o n , a n u n u s u a l l y h i g h 1 proportion compared w i t h t h e n a t i o n a l employment i s manufacturing, than 2 3 4 , 5 0 0 0 , Services o r about constitute both wholesale First i n w h i c h was t h e l i v e l i h o o d o f more 30 p e r c e n t o f the l a b o r f o r c e a broad assumed g r e a t i m p o r t a n c e 35»5 p e r c e n t . c a t e g o r y , w h i c h i n r e c e n t y e a r s has i n Toronto's and r e t a i l , i n 1961. economic s t r u c t u r e . a l s o assumes a n i m p o r t a n t role i n 2 Toronto's economy. The c o n t i n u e d g r o w t h o f m a n u f a c t u r i n g , D o n a l d K e r r a n d J a c o b S p e l t , The C h a n g i n g F a c e o f T o r o n t o ( O t t a w a : G e o g r a p h i c a l B r a n c h , M i n e s and T e c h n i c a l Surveys, 1965), p. 74. 2 Ibid. Trade, 98 trade and finance can market, l a b o r supply The be and strong the had grown by Metropolitan 55,000 persons per about 4 per the 60 p e r year cent the The ronto Planning ronto can Table 4 on be Toronto A r e a , and i n the n e x t page (99))' A large"proportion a m o u n t i n g t o more t h a n h a l f born outside inhabitants Canada, and immigrated areas surrounding ronto Metropolitan 1967 (Toronto, The establishment A r e a as of nearly of defined l a r g e r than growth of the of Metropolitan increase is slightly Area. by the population Metropolitan To- M u n i c i p a l i t y of Metropolitan To- f o l l o w i n g t a b l e : (please of Toronto's p o p u l a t i o n of the About o n e - t h i r d o f of the and at focal annual growth r a t e Census A r e a , the s e e n as immigration. an the Census M e t r o p o l i t a n Toronto Planning Metropolitan T o r o n t o shows a s i n c e the i n 1953; represents of the Toronto. employment a r e a s population Dominion Bureau of S t a t i s t i c s Metropolitan in The Corporation cent. of o f d e v e l o p m e n t downtown and t r a n s p o r t a t i o n system. the framework o f transportation f a c i l i t i e s o f r e s i d e n t i a l and concentration A r e a i n 1967 of w i t h i n the development p a t t e r n of M e t r o p o l i t a n wide-spread d i s p e r s a l a explained total, the t o Canada s i n c e per the Toronto are growth, stemmed residents of n e a r l y 25 Metropolitan has cent War. also see the from area were of the area's The fringe undergoing Toronto Planning Board, Metropolitan J u l y , 1 9 6 7 ) , p. 10. To- 99 TABLE I V THE POPULATION GROWTH I N METROPOLITAN TORONTO AREA 1921. - 1980* Year M e t r o . Census Area Metro. Planning Area 1921 1931 1941 1951 1956 1961 1966 1980 862,702 961,154 1,210,353 1,504,277 1,824,589 2,158,496 640,002 852,564 950,490 1,194,887 1,475,811 1,777,858 2,100,370 2,811,600 Muni, of - Metro 611,443 818,348 909,928 1,117,470 1,358,028 1,618,787 1,881,691 2,400,000 * M e t r o p o l i t a n Toronto Planning Board, M e t r o p o l i t a n Key F a c t s ( T o r o n t o : M e t r o p o l i t a n T o r o n t o P l a n n i n g B o a r d , January, 1 9 6 8 ) . urban development. ih Most o f t h e f r i n g e the western s e c t i o n Port Credit. This g r o w t h has b e e n occuring T o r o n t o Township, S t r e e t s v i l l e , and growth i s p a r t o f the h i s t o r i c development t r e n d a l o n g t h e n o r t h s h o r e o f Lake O n t a r i o between T o r o n t o and Hamilton. In pal services the 1940's, t h e i n a b i l i t y t o expand needed munici- t o meet t h e demands o f t h e g r o w i n g p o p u l a t i o n created a c r i s i s i n local government Following extensive hearings i n the Toronto area. In 1950-51, the Ontario B o a r d u n d e r t h e c h a i r m a n s h i p o f L . R. Cumming, Q. C , Ibid. Municipal handed I Mile M E T R O P O L I T A N METROPOLITAN TORONTO PLANNING BOARO JAN. 1968. T O R O N T O MUNICIPALITIES / V I L L A G E or -jSTourf VILLE N O R T H TOWNSHIP OF] TOWNSHIP ^TORONTO OF VAUGHAN TOWNSHIP GORE OF ( V I L L A G E 1 R I D G E E A S T MARKHAM OF M A R K H A M F R I N G E BOROUGH OF NORTH TOWNSHIP YORK OF PICKERING M I D D L E I T H R E E V I L L A G E BOROUGH OF 1 P I C K E R I N G , OF TOWN W E S T Of A J A X SCARBOROUGH V ? BOROUGH OF/ F R I N G E TOWN ?:ETOBICOKE OF S T R E E T S V I L L E S \ BOROUGH O F , JTORK L TOWNSHIP " « . I N N E R OF TORONTO ( B E C A M E OF J A N . T H E CITY T H R E E OF TORONTO TOWN M I S S I S S A U G A I 1 9 6 8 ) MUNICIPALITY OF METROPOLITAN TORONTO y T O W N OF IMPORT CREDIT 2 M I L E S G R O U P I N G S M E T R O P O L I T A N AjirTCinDAi I T A M TnonMTO oi t u u i M f t R n t n n J A M I Q R A O F M U N I C I P A L I T I E S T O R O N T O P L A N N I N G A R E A ...... . T O R O N T O MUNICIPALITY OF METROPOLITAN TORONTO MUNICIPALITIES C E N S U S METROPOLITAN (DEFINED BY DOMINION BUREAU OF STATISTICS) A R E A 103 down i t s h i s t o r i c d e c i s i o n on J a n u r a y 2 0 , 1 9 5 3 , the of a federated metropolitan establishment w o u l d have jurisdiction 13 m u n i c i p a l i t i e s . adopted and 1, 15, 1954. government 1953 t h e M e t r o p o l i t a n T o r o n t o jurisdicting However, d e s p i t e which m a t t e r s o f common c o n e r n t o a l l The P r o v i n c i a l meeting, assuming success government subsequently the M u n i c i p a l i t y o f M e t r o p o l i t a n Toronto on A p r i l first over recommending over Act ( B i l l 8 0 ) , Council held i t s the area the M e t r o p o l i t a n on J a n u a r y Corporation's i n s u s t a i n i n g t h e p h y s i c a l and economic growth o f t h e a r e a , many p r o b l e m s r e m a i n e d a n d c a u s e d i n c r e a s i n g c o n c e r n . was evident areas with t h a t t h e p h y s i c a l a n d s o c i a l needs o f t h e o l d e r would r e q u i r e i n c r e a s i n g a t t e n t i o n ; f i n a n c i a l continued to exist respect between t h e m u n i c i p a l i t i e s , t o s c h o o l s ; and a growing concern disparities particularly was expressed r e g a r d i n g e q u a l i t y o f r e p r e s e n t a t i o n on t h e M e t r o p o l i t a n cil. In 1963, the P r o v i n c i a l Government a p p o i n t e d C o m m i s s i o n on M e t r o p o l i t a n T o r o n t o ; G o l d e n b e r g , Q. C , the R o y a l On J a n u a r y 1 , Government was c r e a t e d . East York, Etobicoke, tion The a r e a 1967 a new M e t r o p o l i t a n was r e - o r g a n i z e d and t h e f i v e f r o m 13 m u n i Boroughs o f North York, Scarborough and York. C o u n c i l was r e - c o n s t i t u t e d t o p r o v i d e on t h e b a s i s o f p o p u l a t i o n . assigned Royal a n d i n J u n e , 1965 D r . H. C. to s i x — t h e C i t y o f Toronto Metropolitan a Coun- d e l i v e r e d t o t h e Government h i s R e p o r t o f Commission. cipalities It t o t h e new M e t r o p o l i t a n In Ontario, planning The representa- Some new f u n c t i o n s were Corporation. areas are established f o r 104 community p l a n n i n g p u r p o s e s u n d e r The P l a n n i n g Chapter 296, pal Affairs. which i s administered Planning M e t r o p o l i t a n Toronto; 1953, Act, area, provided to continue been c a r r i e d The as areas by t h e M i n i s t e r o f M u n i c i - e x i s t e d before the formation o f f o r the c r e a t i o n o f a m e t r o p o l i t a n the area-wide p l a n n i n g M u n i c i p a l i t y o f M e t r o p o l i t a n Toronto government and p l a n n i n g The M e t r o p o l i t a n w h i c h had i s regarded a u t h o r i t y o f the Authority Corporation i s c o n t r o l l e d by C o u n c i l , w h i c h c o n s i s t s o f 33 members Metropolitan planning Area. I . The M e t r o p o l i t a n G o v e r n m e n t " Organization. Toronto 1946. on s i n c e M e t r o p o l i t a n Toronto R.S.O. the M u n i c i p a l i t y of M e t r o p o l i t a n and expand the metropolitan the Act, coming f r o m t h e s i x l o c a l m u n i c i p a l i t i e s on a p o p u l a t i o n b a s i s . p o l i c y - r e c o m m e n d i n g body o f t h e C o u n c i l i s i t s E x e c u t i v e ttee which c o n s i s t s o f the M e t r o p o l i t a n local municipal The other of Metropolitan desirable. C o u n c i l may e s t a b l i s h At the p r e s e n t Committees o f t h e M e t r o p o l i t a n and planning, welfare (2) parks and housing, a n d two Toronto. committees, and a s s i g n d u t i e s regards Commi- Chairman, the s i x m a y o r s , a n d two s e n i o r c o n t r o l l e r s aldermen of the C i t y The t o them a s t h e C o u n c i l time, the f i v e Corporation are: a n d r e c r e a t i o n , (3) a n d , (5) works. o r g a n i z a t i o n of the Metropolitan standing or Standing (l) legislation transportation, (4) A d e s c r i p t i o n o f the Corporation c a n be s e e n i n t h e 105 chart on t h e n e x t page. In 1953, their into individual while the l o c a l identity, i t s jurisdiction municipalities retained the M e t r o p o l i t a n the wholesale supply Corporation took and p u r i f i c a t i o n o f water, p r o v i s i o n o f major s t o r m and s a n i t a r y sewers and t h e c o n t r o l o f water p o l l u t i o n , responsibility f o rbasic c o s t s , p u b l i c t r a n s p o r t a t i o n and the major r o a d gional planning, a d m i n i s t r a t i o n o f the county lower c o u r t s , p u b l i c housing, aged and t h e care were a s s i g n e d On J a n u a r y 1 , a n d was p r o v i d e d f a r e and housing, libraries, Corporation new r e s p o n s i b i l i t i e s ambulance resources through a system o f m e t r o p o l i t a n on to the Metropolitan wel- s e r v i c e , Canadian o p e r a t i o n o f the M e t r o p o l i t a n p o o l i n g o f the f i n a n c i a l Metropolitan policing, National waste d i s p o s a l , and e d u c a t i o n . ^ The on and t h e homes f o r t h e 1967 t h e M e t r o p o l i t a n was r e - o r g a n i z e d , Exhibition, jail the f u n c t i o n s o f m e t r o p o l i t a n l i c e n s i n g and a i r p o l l u t i o n Corporation. network, r e - o f i n d i g e n t h o s p i t a l p a t i e n t s and n e g l e c t e d I n 1957, children. r e g i o n a l parks, education Corporation's Corporation i s based o f the area m u n i c i p a l i t i e s assessment and t a x a t i o n . funds a r e secured each o f the l o c a l m u n i c i p a l i t i e s , by an annual b a s e d on t h e i r The levy proportion 7 of the t o t a l assessment i n the Metropolitan Area. M e t r o p o l i t a n T o r o n t o P l a n n i n g B o a r d , Summary o f P r o cedures o f the M e t r o p o l i t a n Toronto P l a n n i n g Board E f f e c t i v e A p r i l 1 . 1967 ( T o r o n t o . May 1 , 1 9 6 7 ) . . Toronto "^Metropolitan Toronto Planning Board, 1967. op. c i t . . p. 1 2 . Metropolitan METROPOLITAN ORGANIZATION 1 4T Metropolitan Licensing Commission 3 Members Police Commission 5 Members Council 33 Members . J f '-!-! Parks and " Recreation | Committee ^ 7 Members i I Legislation and Planning Committee • 7 Members M Parks Department Source rrTransportation Metropolitan Toronto Housing Company Limited t Committee 11 Members Traffic Department Welfare Department Toronto Transit Commission - - i Welfare and Housing Committee 8 Members Executive Committee 7 Members Roads Department Metropolitan Toronto Planning Board Works • Committee 7 Members Housing Department Works Department Metropolitan Toronto Planning Board, 1 9 6 7 y 1 Property Department Legal Department Treasury Department Clerk's Department Audit Department Assessment Department Courts of Revision Personnel Department Emergency Services Department 107 The a p p r a i s a l o f the M e t r o p o l i t a n Authority i n regard Toronto to C r i t e r i o n I i s t h e r e f o r e Government j u d g e d t o be "excellent". Legal Powers. exercised by t h e M e t r o p o l i t a n section 2, Act that Council. Corporation are I t i s s t a t e d under S e c t i o n 3 o f the M u n i c i p a l i t y o f M e t r o p o l i t a n " e x c e p t where o t h e r w i s e Metropolitan provided The powers o f t h e M e t r o p o l i t a n Council shall under S u b s e c t i o n provided, Sub- Toronto t h e powers o f t h e be e x e r c i s e d b y b y - l a w " . 3 o f t h e same S e c t i o n I t i s also that: A by-law p a s s e d by t h e M e t r o p o l i t a n C o u n c i l i n t h e e x e r c i s e o f a n y o f i t s powers a n d i n good f a i t h s h a l l n o t be o p e n t o q u e s t i o n , o r be q u a s h e d , s e t a s i d e o r d e c l a r e d i n v a l i d e i t h e r w h o l l y o r p a r t l y , on a c c o u n t o f the u n r e a s o n a b l e n e s s o r s u p p o s e d u n r e a s o n a b l e n e s s o f i t s p r o v i s i o n s o r a n y o f them. As t o t h e l e g a l powers o f t h e E x e c u t i v e Metropolitan Corporation, i t i s provided Committee o f t h e under S u b s e c t i o n S e c t i o n 12 o f t h e M u n i c i p a l i t y o f M e t r o p o l i t a n 2, Toronto Act that: The E x e c u t i v e Committee has a l l t h e powers a n d d u t i e s of a board o f c o n t r o l under s u b s e c t i o n 1 o f s e c t i o n 206 . o f The M u n i c i p a l A c t , a n d s u b s e c t i o n 2 t o 15 a n d 17 t o 19 o f t h a t s e c t i o n a p p l y m u t a t i s m u t a n d i s . The a p p r a i s a l o f the M e t r o p o l i t a n Authority i n regard Toronto to C r i t e r i o n I I i s therefore Government j u d g e d t o be "good". Control. by the Metropolitan litan the The M u n i c i p a l i t y o f M e t r o p o l i t a n Council. At the present C o u n c i l c o n s i s t s o f 33 members. C i t y of Toronto; Toronto i s c o n t r o l l e d time, the Metropo- T w e l v e members come f r o m s i x from the Borough o f North York; five 108 from the Borough of Scarborough; f o u r from the Borough of E t o - bicoke; three from of East York. members The Each l o c a l m u n i c i p a l i t y ' s share take their of their election seats the municipal to their The respective municipal the highest Metropolitan Council elects of C o u n c i l and t h e c h i e f the M e t r o p o l i t a n Metropolitan As Corporation. executive o f f i c e r of years. 2, Act that S e c t i o n 8 o f the M u n i c i p a l i t y o f M e t r o p o l i " e a c h member o f t h e M e t r o p o l i t a n t h e C h a i r m a n , has one v o t e have a v o t e The Authority The C h a i r m a n i s t h e h e a d t o t h e v o t i n g power o f t h e members, i t i s s t a t e d tan Toronto not members The C h a i r m a n a n d a l l o t h e r mem- f o r a term o f t h r e e under S u b s e c t i o n except to t h e i r one o f i t s own as i t s Chairman. serve votes councils. Council. o r any o t h e r p e r s o n bers C o u n c i l by c o u n c i l s a u t o m a t i c a l l y become t h e members o f Metropolitan the the Borough o f t h e number o f on M e t r o p o l i t a n members who a r e e l e c t e d w i t h local two f r o m on t h e C o u n c i l i s b a s e d on t h e m u n i c i p a l i t y ' s p o p u l a t i o n . Members virtue the Borough of York; except o n l y , a n d t h e C h a i r m a n does i n the event o f an e q u a l i t y o f v o t e s . " a p p r a i s a l t o the M e t r o p o l i t a n Toronto i n regard Council, to C r i t e r i o n I I I i s therefore Government j u d g e d t o be "good". L o c a l Governments a n d T h e i r F u n c t i o n s . The e s t a b l i s h m e n t the does n o t i n d i c a t e t h e M u n i c i p a l i t y of M e t r o p o l i t a n Toronto elimination has of l o c a l been a s s i g n e d governments. only these The M e t r o p o l i t a n of Corporation f u n c t i o n s w h i c h c a n be c a r r i e d o u t 109 most e f f e c t i v e l y purely local on a n a r e a - w i d e n a t u r e have r e m a i n e d On J a n u a r y 1, combined basis. into 1967, t h e 13 s i x municipalities Those functions of with the l o c a l governments. local municipalities were by a l r n a g a m a t i o n as f o l l o w s : A. T o r o n t o , Swansea a n d F o r e s t Hill became t h e C i t y o f T o r o n t o ; B. Y o r k a n d Weston became t h e B o r o u g h o f Y o r k ; C. E a s t Y o r k a n d L e a s i d e became t h e B o r o u g h o f E a s t D. E t o b i c o k e , Long Branch, New T o r o n t o , a n d M i m i c o York; became t h e Borough o f E t o b i c o k e ; E. N o r t h Y o r k became t h e B o r o u g h o f N o r t h York; g F. Scarborough The was in consolidation clearly an attempt of l o c a l litan B e s i d e s , the p r i n c i p l e government i s s t i l l The Authority Geographic appraisal to provide better governments local o f a t w o - l e v e l form o f metropo- Governmental i n r e g a r d t o C r i t e r i o n I V i s j u d g e d t o be Adequacy. The u r b a n d e v e l o p m e n t the M e t r o p o l i t a n into "excellent". i n Toronto Area Corporation proper. has r e a c h e d i n t o P i c h e r i n g and A j a x . extended ser- maintained. the e a s t , urban development has s i x Boroughs local to the M e t r o p o l i t a n Toronto r e a c h e d f a r beyond Township, governments i n t o t o f o r m more e f f i c i e n t the M e t r o p o l i t a n Toronto Area vices. has became t h e B o r o u g h o f S c a r b o r o u g h . To the P i c k e r i n g To t h e n o r t h , t h e u r b a n i z e d a r e a Vaughan, W o o d b r i d g e , Markham, and Richmond , M e t r o p o l i t a n Key F a c t s . loc. cit. 110 Hill. To t h e w e s t , t h e h e a v i e s t p e o p l e have moved i n t o Port C r e d i t , Toronto Township, S t r e e t - sville, and even i n O a k v i l l e . diction o f the M e t r o p o l i t a n the same a r e a The Authority urban expansion o c c u r s , and However, t h e p o l i t i c a l Corporation (240 s q u a r e m i l e s ) is still limited within a s i t was i n 1 9 5 3 . a p p r a i s a l o f the M e t r o p o l i t a n i n regard juris- Toronto to C r i t e r i o n V i s therefore Government judged t o be "poor". Board II. The M e t r o p o l i t a n The composition and L o c a l P l a n n i n g o f the M e t r o p o l i t a n Functions Toronto i s e s t a b l i s h e d by t h e M i n i s t e r o f M u n i c i p a l Province The members o f t h e B o a r d a r e a p p o i n t e d subject Affairs of under S e c t i o n 5 o f the P l a n n i n g A c t . the Council, of Ontario Planning to the approval by t h e M e t r o p o l i t a n o f the M i n i s t e r . On May 2, 1967 t h e M i n i s t e r e s t a b l i s h e d a 28 men membership f o r t h e B o a r d . This new c o m p o s i t i o n fringe area politan Council. case cil, r e p r e s e n t a t i o n on t h e M e t r o - I n a d d i t i o n , t h e new c o m p o s i t i o n with l o c a l planning boards will Board appoints an E x e c u t i v e Chairman, V i c e - C h a i r m a n , ensure than has been i n the p a s t through r e p r e s e n t a t i o n from those The the the r e p r e s e n t a t i o n from the w h i c h had no p o l i t i c a l much c l o s e r l i a i s o n the increased Committee boards.^ composed o f Chairman o f the M e t r o p o l i t a n a n d two members a p p o i n t e d annually ^Metropolitan Toronto Planning d u r e s , o p . c i t . , p . 3» Coun- b y t h e B o a r d , t o make B o a r d , Summary o f P r o c e - Ill recommendations strative concerning matters, personnel, organization and a d m i n i - i n c l u d i n g the Board's . a n n u a l budget, and t o t r a n s a c t Board matters during the p e r i o d between r e g u l a r Board 10 meetings. The staff administration, is o f the Board i s organized land use, research a f u r t h e r breakdown i n t h e l a n d sions i n that sections Control. it Under S u b s e c t i o n i s stated divisions- and t r a n s p o r t a t i o n . There use and t r a n s p o r t a t i o n of each d i v i s i o n c o n t r o l and comprehensive p l a n n i n g into four deal with divi- development respectively." '' ' 1, S e c t i o n 1 1 3 o f The P l a n n i n g A c t , that: The C o u n c i l o f t h e d e s i g n a t e d m u n i c i p a l i t y s h a l l a p p o i n t the p l a n n i n g board o f a p l a n n i n g a r e a , and every appointment to the p l a n n i n g board o f a j o i n t p l a n n i n g area i s s u b j e c t t o the approval o f the Minister. and under S u b s e c t i o n 2 o f t h e same S e c t i o n that: Where a p l a n n i n g a r e a c o n s i s t s o f p a r t o r a l l o f one m u n i c i p a l i t y and t e r r i t o r y w i t h o u t m u n i c i p a l o r g a n i z a t i o n , every appointment to the p l a n n i n g board o f the p l a n n i n g area i s s u b j e c t t o the approval of the M i n i s t e r . It i s c l e a r that tropolitan formation As the M i n i s t e r o f Municipal Council o f T o r o n t o have a g r e a t o f the M e t r o p o l i t a n Affairs a u t h o r i t y i n the Toronto Planning to the composition o f the P l a n n i n g Ibid. " ^ I b i d . , p . 6. a n d t h e Me- Board. Board, i t i s p r o - 112 v i d e d under S u b s e c t i o n 1, S e c t i o n 4 o f t h e same A c t t h a t : A p l a n n i n g board . . . s h a l l c o n s i s t o f , (a) Where t h e p l a n n i n g a r e a c o n s i s t s o f p a r t o r a l l o f one m u n i c i p a l i t y o r o f p a r t o r a l l o f one m u n i c i p a l i t y and t e r r i t o r y w i t h o u t m u n i c i p a l o r g a n i z a t i o n , the head o f the c o u n c i l o f the m u n i c i p a l i t y i s a member e x o f f i c i o ; o r (b) i n t h e c a s e o f a j o i n t p l a n n i n g a r e a , t h e head o f the c o u n c i l o f the d e s i g n a t e d m u n i c i p a l i t y i s a member e x o f f i c i o , and f o u r , s i x o r e i g h t members who a r e n o t e m p l o y e e s of a m u n i c i p a l i t y o r o f a l o c a l board. However, t h e members o f t h e P l a n n i n g B o a r d who a r e members o f the metropolitan council members o f t h e P l a n n i n g As it can not c o n s t i t u t e a m a j o r i t y o f the Board. t o t h e term o f o f f i c e i s provided under S u b s e c t i o n o f t h e P l a n n i n g B o a r d members, 5, S e c t i o n 4 o f t h e same A c t that: The members o f t h e p l a n n i n g b o a r d who a r e n o t members of a m u n i c i p a l c o u n c i l s h a l l h o l d o f f i c e f o r three y e a r s , p r o v i d e d t h a t on t h e f i r s t a p p o i n t m e n t t h e c o u n c i l o f t h e d e s i g n a t e d m u n i c i p a l i t y , f r o m among s u c h members s h a l l d e s i g n a t e members who s h a l l h o l d o f f i c e , (a) u n t i l t h e 1 s t d a y o f J a n u a r y o f t h e y e a r f o l l o w i n g the. d a t e o f a p p o i n t m e n t ; (b) u n t i l t h e 1 s t d a y o f J a n u a r y o f t h e s e c o n d y e a r f o l l o w i n g t h e date o f appointment; and (c) u n t i l the 1 s t day o f January o f the t h i r d y e a r f o l l o w i n g the date o f appointment, r e s p e c t i v e l y , so t h a t a s n e a r l y a s p o s s i b l e o n e - t h i r d o f s u c h members s h a l l r e t i r e e a c h y e a r ; a n d t h e members o f t h e p l a n n i n g b o a r d who a r e members o f a c o u n c i l s h a l l be appointed annually. The members o f t h e P l a n n i n g B o a r d a r e a b l e t o be The been noted of re-appointed. g r e a t power o f t h e M i n i s t e r o f M u n i c i p a l A f f a i r s has earlier. This i s further provided The P l a n n i n g A c t t h a t : under S e c t i o n 5 113 N o t w i t h s t a n d i n g any o t h e r p r o v i s i o n i n t h i s A c t , the M i n i s t e r may, i n o r d e r t o s u i t t h e s p e c i a l needs o f a n y p l a n n i n g a r e a , vary the c o n s t i t u t i o n o f the p l a n n i n g b o a r d , t h e p r o c e d u r e s by w h i c h i t i s a p p o i n t e d , t h e t e r m o f o f f i c e o f i t s members, a n d t h e manner i n w h i c h i t i s to f u n c t i o n , a n d d e s i g n a t e t h e f u n c t i o n s o f t h e p l a n n i n g b o a r d w i t h i n t h e s c o p e o f s e c t i o n 10, and may make s p e c i a l p r o v i s i o n s r e l a t i n g t o the recommendation, adopt i o n and a p p r o v a l o f the o f f i c i a l p l a n o f the p l a n n i n g area. The any important The the role of the Planning i n their Functions Local a p p r a i s a l o f the M e t r o p o l i t a n Toronto i n regard to C r i t e r i o n Functions. Act provided surrounding M e t r o a n d 13 the d e s i g n a t e d 19 local Area I I I i s j u d g e d t o be f o r the c r e a t i o n o f a p l a n n i n g i t , at total Planning area p l u s one t i e r area. The M e t r o p o l i t a n o f town- Corporation m u n i c i p a l i t y f o r the p l a n n i n g a r e a . Area, which s i x within municipalities i s also a subsidiary planning Planning from "poor". o f 19 m u n i c i p a l i t i e s , In the t w o - l e v e l p l a n n i n g cerned support The M u n i c i p a l i t y o f M e t r o p o l i t a n i n the f r i n g e is Toronto matters. Toronto. b e e n d e f i n e d as M e t r o p o l i t a n T o r o n t o ships t h e r e f o r e do n o t have Planning Board r e c e i v e s i t s f i n a n c i a l Planning Toronto Area area-wide p l a n n i n g Municipality of Metropolitan The has citizens Each of area. system o f the M e t r o p o l i t a n the M e t r o p o l i t a n Planning Board i s con- w i t h e s t a b l i s h i n g the g e n e r a l p a t t e r n and p r i n c i p l e s o f development, l e a v i n g t o l o c a l m u n i c i p a l i t i e s the r e s p o n s i b i l i t y for detailed retained planning the r i g h t plans, provided control. to formulate approval The l o c a l planning o r amend t h e i r i s obtained own boards have official from the M e t r o p o l i t a n 114 Planning B o a r d and 19 All planners, their the local Provincial m u n i c i p a l i t i e s have e m p l o y e d p r o f e s s i o n a l o r have a p p o i n t e d local The Functions Government. planning planning to d e a l with matters. a p p r a i s a l o f the i n regard officials M e t r o p o l i t a n Toronto Area Planning to C r i t e r i o n - I V i s t h e r e f o r e judged to be "good". On June 2 3 , 1953 "the Planning A r e a be G e o g r a p h i c Adequacy. cil recommended that Metropolitan Toronto, Toronto and i n a d d i t i o n , the C o r e , Vaughan, Markham and ted M u n i c i p a l i t i e s designated by the therein." Development, then The Metropolitan Toron- area the as Planning Planning Area, and the "Fringe M u n i c i p a l i t i e s " . ties are the Towns o f A j a x , Hill and Streetsville, Vaughan and Toronto Stouffville and total the 13 m u n i c i p a l i t i e s the The but 13 Port Fringe MunicipaliC r e d i t , Richmond t h e T o w n s h i p s o f Markham, P i c k e r i n g , Woodbridge, of the Fringe area Area i s c a l l e d Mississauge, C o r e , and n i n g A r e a i s made up subsequently beyond M e t r o p o l i t a n Toronto therein, The a l l incorpora- and The 13 Toronto, M i n i s t e r of Planning M e t r o p o l i t a n Toronto the Townships o f : area Area. b r o u g h s and M u n i c i p a l i t y of the to Planning of Coun- T h i s was f o r community p l a n n i n g , "Fringe" area the P i c k e r i n g and responsible w i t h i n the the M e t r o p o l i t a n the Villages Thus t h e o f Markham, P i c k e r i n g , M e t r o p o l i t a n Toronto C i t y of Toronto and the five PlanBo- Municipalities. under the jurisdiction of the Metropolitan 115 Planning Board ger than sent i s 720 square the M e t r o p o l i t a n Toronto time, into Oakville. Area will c e r t a i n l y proceed the n o r t h shore into control at those areas o f Lake Toronto where t h e P l a n n i n g all. a p p r a i s a l of the M e t r o p o l i t a n Toronto i n regard lar- However, a t t h e p r e - The f u t u r e u r b a n d e v e l o p m e n t o f B o a r d has no p l a n n i n g Functions miles beyond the w e s t e r n boundary o f the P l a n n i n g Area The proper. the urban development a l o n g O n t a r i o has r e a c h e d 480 s q u a r e m i l e s , about Area to C r i t e r i o n V i s t h e r e f o r e judged Planning t o be "fair". Metropolitan Planning Functions. assigned 10 such The P l a n n i n g B o a r d has b e e n d u t i e s as a r e s t a t e d under S u b s e c t i o n o f The P l a n n i n g 1, Section Act that: 9 E v e r y p l a n n i n g board s h a l l i n v e s t i g a t e and s u r v e y t h e p h y s i c a l , s o c i a l and economic c o n d i t i o n s i n r e l a t i o n t o t h e d e v e l o p m e n t o f t h e p l a n n i n g a r e a a n d may p e r f o r m s u c h o t h e r d u t i e s o f a p l a n n i n g n a t u r e a s may be r e f e r r e d t o i t by a n y c o u n c i l h a v i n g j u r i s d i c t i o n i n t h e p l a n n i n g a r e a , and w i t h o u t l i m i t i n g the g e n e r a l i t y o f the f o r e g o ing i t shall, (a) p r e p a r e maps, d r a w i n g s , t e x t s , s t a t i s t i c a l i n f o r m a t i o n and a l l o t h e r m a t e r i a l n e c e s s a r y f o r t h e s t u d y , e x p l a n a t i o n and s o l u t i o n o f problems o r m a t t e r s a f f e c t i n g the development o f the p l a n n i n g a r e a ; (b) h o l d p u b l i c m e e t i n g s a n d p u b l i s h i n f o r m a t i o n f o r t h e p u r p o s e o f o b t a i n i n g the p a r t i c i p a t i o n and c o - o p e r a t i o n o f the i n h a b i t a n t s o f the p l a n n i n g area i n det e r m i n i n g the s o l u t i o n o f problems o r matters a f f e c t i n g the development o f the p l a n n i n g a r e a ; (c) c o n s u l t w i t h any l o c a l board h a v i n g j u r i s d i c t i o n w i t h i n the p l a n n i n g area; (d) p r e p a r e a p l a n f o r t h e p l a n n i n g a r e a s u i t a b l e f o r a d o p t i o n as t h e o f f i c i a l p l a n t h e r e o f a n d f o r w a r d i t to the c o u n c i l s o f the m u n i c i p a l i t i e s a f f e c t e d t h e r e by, a n d recommand s u c h p l a n t o t h e c o u n c i l o f t h e designated m u n i c i p a l i t y f o r adoption; 116 (e) recommend f r o m t i m e t o t i m e t o t h e c o u n c i l s o f t h e m u n i c i p a l i t i e s i n t h e p l a n n i n g a r e a the i m p l e m e n t a t i o n o f any o f t h e f e a t u r e s o f the o f f i c i a l p l a n o f the p l a n n i n g a r e a ; ( f ) r e v i e w the o f f i c i a l p l a n f r o m t i m e t o t i m e and r e commend amendments t h e r e t o t o t h e c o u n c i l o f the designated m u n i c i p a l i t y f o r adoption. The Metropolitan many s t u d i e s and i n the d e n s i t y study, plan, Toronto Planning past years, metropolitan t r a n s p o r t a t i o n study, housing, and conducted distribution urban renewal study, study, waterfront water and park system, g e n e r a l l a n d use, d e n s i t y p l a n , urban development boundary, employment bution, and hensive planning study, many o t h e r s . shopping centers The B o a r d has r e s e a r c h p r o g r a m and t a t i o n program, i n c o n j u n c t i o n Traffic apartment commuter r a i l sewer s e r v i c e s , m e t r o p o l i t a n population s u c h as B o a r d has with and retail carried out a districompre- a comprehensive the Metropolitan transporRoads Departments, the T o r o n t o T r a n s i t Company, the ment o f Highways and the Metropolitan T o r o n t o and school, and Depart- Region Trans - 12 portation Study. The B o a r d i s a l s o c h a r g e d by p o l i t a n Toronto covering belts the Act with the l a n d u s e s , ways o f and park areas, On December 1 5 , "Metropolitan and M u n i c i p a l i t y of preparation o f an official Metroplan communication, s a n i t a t i o n , green public transportation. 1966 the P l a n f o r the P l a n had the Metropolitan Metropolitan Area". This i t s o r i g i n s i n the Toronto Metropolitan Toronto Planning 1967, op. c i t . , p . 33. Council adopted Toronto Planning Draft Official 1959 Board, Metropolitan 117 P l a n w h i c h h a s r e v i s e d by t h e M e t r o p o l i t a n 1964 a n d g i v e n e x t e n s i v e Area d u r i n g 1965. p u l b i c hearings Planning Board i n throughout The P l a n was a d o p t e d by t h e M e t r o p o l i t a n P l a n n i n g B o a r d i n December, 1965 a s a p l a n s u i t a b l e as an " o f f i c i a l but r e v i s e d a n d a d o p t e d by t h e M e t r o p o l i t a n C o u n c i l i n December, 1966 n o t as an " o f f i c i a l statement o f the p o l i c y o f the M e t r o p o l i t a n guide f o r adoption p l a n " w i t h i n t h e m e a n i n g o f The P l a n n i n g A c t , was s u b s e q u e n t l y planning the P l a n n i n g p l a n " b u t as a Corporation f o r the o f f u t u r e M e t r o p o l i t a n works a n d s e r v i c e s a n d a s a f o r f u t u r e development i n the M e t r o p o l i t a n Toronto Plan- 1^ ning Area. The Planning J M e t r o p o l i t a n P l a n proposes an urban a r e a Area f o r f u t u r e development. comprises about plete 36 development o f Metro i t s e l f , p e r cent dary 400 s q u a r e m i l e s ; o f the f r i n g e . i s only the l i m i t within the The p r o p o s e d u r b a n i tprovides f o r almost area com- and f o r d e v e l o p m e n t o f a b o u t The U r b a n ' D e v e l o p m e n t A r e a ' s boun- o f u r b a n d e v e l o p m e n t w h i c h c a n be accom14 modated i n t h e f o r e s e e a b l e future. lopment w i l l compact, w i t h r e s i d e n t i a l a n d e m p l o y - ment a r e a s and be r e l a t i v e l y dispersed interchange. so as t o p e r m i t I n t e n s i v e uses w i l l The a r e a f o r u r b a n reasonable deve- accessibility be c o n c e n t r a t e d C e n t r a l Area and a t s e l e c t e d l o c a t i o n s throughout i n the the Urban The M u n i c i p a l i t y of Metropolitan Toronto, Metropolitan P l a n f o r t h e M e t r o p o l i t a n T o r o n t o P l a n n i n g . A r e a ( T o r o n t o , DecemJ ber, 1966), p . 1. 14' M e t r o p o l i t a n T o r o n t o P l a n n i n g B o a r d , Summary o f d u r e s , o p . c i t . , p . 5« Proce- 118 Development Area a t the focal points of the transportation 15 system. ^ reserved rural Lands o u t s i d e f o r productive and in portation the urban development boundary w i l l agricultural activity and be un-intensive r e c r e a t i o n a l uses."^ 196k, the Planning Plan which served Board a l s o completed as a b a s i s f o r the the Trans- Metropolitan Plan. The Planning Metropolitan are C o u n c i l , and made a v a i l a b l e t o t h e with specific overall plans. the Board advises Ontario Municipal b y - l a w s , and and the i n an the advisory s e r v i c e s of local to a s s i s t new plans makes r e c o m m e n d a t i o n s design the their local municipalities Affairs and the o f s u b d i v i s i o n and to the of major roads, t i m i n g o f sewer and deal them i n d e v e l o p i n g with the i t s technical staff M i n i s t e r of Municipal B o a r d on capacity to m u n i c i p a l i t i e s , both to In c o n j u n c t i o n l o c a t i o n and the the p r o b l e m s and own on Board a c t s Metropolitan transit water f a c i l i t i e s and zoning Council facilities other major 17 public vided works. a t no cation 1 The s e r v i c e s to l o c a l m u n i c i p a l i t i e s are c o s t to the l o c a l m u n i c i p a l i t i e s except f o r c o s t s where a s u b s t a n t i a l volume o f r e p o r t s ^The M u n i c i p a l i t y of M e t r o p o l i t a n o p . . c i t . , p . 3• 1 Plan, , ronto Metropolitan Toronto Planning 1967. op. c i t . , p . 34. 1953-1963 (Toronto, publi- i s required. Metropolitan Board, Metropolitan ,10. Years of Progress: June, p. 16. 1963J7 Toronto, pro- Metropolitan To- Toronto 119 The Functions a p p r a i s a l of the M e t r o p o l i t a n i n regard to C r i t e r i o n Toronto Area VT i s t h e r e f o r e Planning j u d g e d t o be "good". Legal The Powers. Planning 1, I t i s s t a t e d under Subsection S e c t i o n 15 o f Act that: N o t w i t h s t a n d i n g a n y o t h e r g e n e r a l o r s p e c i a l A c t , where an o f f i c i a l p l a n i s i n e f f e c t , no p u b l i c work s h a l l be u n d e r t a k e n and, e x c e p t as p r o v i d e d i n s u b s e c t i o n s 2 and 3 , no b y - l a w s h a l l be p a s s e d f o r a n y p u r p o s e t h a t does not conform t h e r e w i t h . and u n d e r S e c t i o n 16 forms w i t h o f t h e same A c t t h a t an o f f i c i a l plan shall "A b y - l a w t h a t be deemed t o i m p l e m e n t t h e official p l a n whether the by-law i s p a s s e d b e f o r e official p l a n i s approved." An pality official politan Official Plan facilitate preparation the i n the M e t r o p o l i t a n A l l subsidiary o f f i c i a l To i f there case on t h e l o c a l Toronto Planning plans mu- Area as must c o n f o r m t o t h e M e t r o - i s one. the M e t r o p o l i t a n Planning B o a r d ' s work i n o f a p l a n and i n the i m p l e m e n t a t i o n o f such a p l a n , M i n i s t e r of Municipal amendments, l o c a l Board d i r e c t s Affairs official w i t h i n the Planning pal c a s e on t h e l o c a l w h i c h has a d o p t e d i t , a n d i n t h i s municipalities o r a f t e r the t h e r e f o r e , i s b i n d i n g on t h e m u n i c i - which has adopted i t , and i n t h i s nicipality well. plan, con- Area refers a l l official plan p l a n amendments, and s u b d i v i s i o n s t o the Board; and the O n t a r i o that notice of a l l zoning Munici- b y - l a w s be g i v e n t o 120 the B o a r d . In cases Metropolitan Plan, to thus handled its i n the local the forwarding Minister. 1 9 existence, planning It The official zoning by-laws p l a n amendments. their P l a n n i n g Board which then a g e n c y i t may s u b d i v i s i o n plans Planning Board i s able As to sub- recommendaincorporates t o the M i n i s t e r . Official to re- the P l a n i s not to express be- The to submit subdivision applications directly the are have c o n s u l t e d Planning Board i s a u t h o r i z e d although the Planning Board i s authorized m u n i c i p a l i t i e s forward Therefore, the amendments c o n f o r m t o o f the v i e w s o f any the commendations on as to the these Commissioner of local staff same way f o r approval v i e w s and fore the i n d i c a t e t o the M i n i s t e r . division plans, tions where l o c a l in i t s opinions matters. i s also provided u n d e r S e c t i o n 33 o f The Planning Act that: I n a d d i t i o n t o any o t h e r remedy o r p e n a l t y p r o v i d e d by law, any c o n t r a v e n t i o n o f a b y - l a w t h a t i m p l e m e n t s an o f f i c i a l p l a n and a n y c o n t r a v e n t i o n o f s e c t i o n 15 may be r e s t r a i n e d by a c t i o n a t t h e i n s t a n c e o f t h e p l a n n i n g board o f the p l a n n i n g a r e a i n w h i c h the c o n t r a v e n t i o n t o o k p l a c e o r any m u n i c i p a l i t y w i t h i n o r p a r t l y w i t h i n s u c h p l a n n i n g a r e a o r any r a t e p a y e r o f any s u c h m u n i c i p a l i t y , and any c o n t r a v e n t i o n o f an o r d e r o f t h e M i n i s t e r made u n d e r s e c t i o n 27 may be r e s t r a i n e d by a c t i o n a t t h e i n s t a n c e o f the M i n i s t e r o r the m u n i c i p a l i t y i n which the c o n t r a v e n t i o n t o o k p l a c e o r any a d j o i n i n g m u n i c i p a l i t y o r any r a t e p a y e r o f any s u c h m u n i c i p a l i t y o r a d j o i n i n g m u n i cipality. Although on the M e t r o p o l i t a n P l a n has , Summary o f P r o c e d u r e s . I b i d . , pp. 6-7. not op. been adopted c i t . , p. as 6. 121 the Official Plan, t h e p r o v i s i o n s o f l e g a l powers t o t h e P l a n - n i n g Board a r e good. Area Planning judged The a p p r a i s a l o f t h e M e t r o p o l i t a n Functions i n regard to Criterion VII i s therefore t o be " e x c e l l e n t " . III. The philosophy ty of Metropolitan Conclusions behind Toronto the c o n s t i t u t i o n o f the M u n i c i p a l i - i s b a s e d on t h e r e c o g n i t i o n o f two basic factors: representation and Toronto common t o b o t h l e v e l s a d i s t i n c t i o n between those e f f e c t i v e l y provided of c o u n c i l , s e r v i c e s w h i c h a r e most on a n a r e a - w i d e b a s i s a n d t h o s e which a r e 20 purely local. elected of As t o t h e f i r s t directly c o n c e p t , members a r e n o t to the M e t r o p o l i t a n the C o u n c i l by v i r t u e o f e l e c t i o n municipalities ensured C o u n c i l b u t become members to o f f i c e i n their as mayors, aldermen o r c o n t r o l l e r s . local T h i s has c o n t i n u i t y a n d c o - o r d i n a t i o n between t h e o p e r a t i o n s o f 2 the As Metropolitan t o the second Corporation area m u n i c i p a l i t i e s . concept, the two-level planning p o s e s on t h e l o c a l machinery im- m u n i c i p a l i t i e s the b a s i c r e s p o n s i b i l i t y f o r r e g u l a t i n g and d e t e r m i n i n g characteristics, and t h e l o c a l while their own a p p e a r a n c e and s p e c i a l i m p o s i n g on t h e M e t r o p o l i t a n Corporation W i l l i a m R. A l l e n , Q. C , M e t r o p o l i t a n T o r o n t o - A S u c c e s s f u l M e t r o p l e x , an a d d r e s s t o t h e A d v a n c e d A d m i n i s t r a t i o n I n s t i t u t e , H a r v a r d U n i v e r s i t y , J u l y 2 1 , 19&7, P« 4. 21 ronto Metropolitan Toronto Planning 1 9 6 7 , o p . c i t . , p . 4. Board, M e t r o p o l i t a n To- 122 the responsibility f o r p r o v i d i n g t h e area-wide framework r e - q u i r e d f o r the development o f the area However, t h e P l a n n i n g politan in advisory process full the Board's r e l a t i o n s h i p Council i s of c r i t i c a l the Province bodies. of Ontario, of f r u s t r a t i o n . adoption This t o the Metro- As i t i s c o n s t i t u t e d boards a r e intended t o be arrangement i s r e a s o n a b l e , o f an o f f i c i a l plan i s difficult the and c a n be s e e n i n t h e p r o v i s i o n s f o r o f an o f f i c i a l o f The P l a n n i n g importance. planning Although t h i s f o r the adoption as a whole. p l a n under S u b s e c t i o n 2, S e c t i o n 10 Act that: No p l a n s h a l l be recommended f o r a d o p t i o n u n l e s s i t i s a p p r o v e d b y a v o t e o f t h e m a j o r i t y o f a l l t h e members of the planning board; and under Subsection 1, S e c t i o n 11 o f t h e same A c t t h a t : The p l a n a s f i n a l l y p r e p a r e d a n d recommended b y t h e p l a n n i n g b o a r d s h a l l be s u b m i t t e d t o t h e c o u n c i l o f the d e s i g n a t e d m u n i c i p a l i t y ; and under S u b s e c t i o n the and 2 o f t h e same S e c t i o n The c o u n c i l o f t h e d e s i g n a t e d p l a n by by-law; under Subsection 1, S e c t i o n :,that:. m u n i c i p a l i t y may adopt 12 o f t h e same A c t t h a t : Upon adoption,:, t h e p l a n s h a l l be s u b m i t t e d b y t h e c o u n c i l t h a t a d o p t e d i t t o t h e M i n i s t e r . . .; and under Subsection is and and 2 o f t h e same S e c t i o n that: The M i n i s t e r may t h e n a p p r o v e t h e p l a n , whereupon i t the o f f i c i a l plan of the planning area; under Subsection 1, S e c t i o n 12a o f t h e same A c t t h a t : The M i n i s t e r may r e f e r a n y p a r t o f t h e p l a n M u n i c i p a l B o a r d . . .; t o the finally that: under S u b s e c t i o n 2 o f t h e same S e c t i o n 123 When a p a r t o f t h e p l a n h a s b e e n r e f e r r e d t o t h e M u n i c i p a l B o a r d , t h e M i n i s t e r may a p p r o v e t h e r e m a i n d e r o f t h e p l a n , whereupon t h e r e m a i n d e r , t o g e t h e r w i t h s u c h p a r t o f t h e p l a n a s may be a p p r o v e d b y t h e M u n i c i p a l Board, i s the o f f i c i a l plan, o f the p l a n n i n g a r e a . Besides, there i s nothing official p l a n must be i m p l e m e n t e d . solved issues of planning question, action This i s one o f t h e unre--._ i n the Province other the o f f i c i a l are in respects, the Metropolitan development p r i n c i p l e s , considered the f i r s t vincial of Ontario. t o be d i r e c t l y instance, those The municipal plan? Area, as a statement o f the C o r p o r a t i o n , those A c t w h i c h s a y s an t h e r e f o r e , i s how t o e n c o u r a g e p o s i t i v e t o implement In i n The P l a n n i n g policies Plan f o r the Toronto deals largely with and r e g u l a t i o n s of P r o v i n c i a l concern. matters which a f f e c t which These a r e , direct i n t e r e s t s such as t h e highway system; s e c o n d l y , matters which a f f e c t surrounding directly region; the general and t h i r d l y , or indirectly, Municipality those p a t t e r n o f development i n the those m a t t e r s w h i c h may Provincial financial of Metropolitan Pro- affect, o b l i g a t i o n s to the Toronto or to l o c a l m u n i c i p a l i t i e s 22 in the Planning Area. There i s l i t t l e pressures doubt t h a t there will be s u b s t a n t i a l f o r f u r t h e r urban development i n t h e f r i n g e w e l l b e y o n d t h e p r o v i s i o n s made b y t h e M e t r o p o l i t a n is foreseeable Oshawa a r e a Plan, that f u t u r e urban expansion w i l l i m m e d i a t l e y t o t h e e a s t , and t h e The M u n i c i p a l i t y o f M e t r o p o l i t a n o p . . c i t . , p . 1. areas Plan. It go i n t o t h e Hamilton-Burlington Toronto, Metropolitan 124 area to to the secure large a west. Therefore, the Province must a d o p t policies s u i t a b l e p a t t e r n of r e g i o n a l development i n Toronto urban Toronto Planning complex. This i s s t a t e d by the this Metropolitan Board: the M e t r o p o l i t a n T o r o n t o P l a n n i n g B o a r d a p p e a l s t o the P r o v i n c e of O n t a r i o f o r a comprehensive p o l i c y statement r e g u l a t i n g and s h a p i n g t h e f u t u r e d e v e l o p m e n t o f t h e whole s o u t h c e n t r a l r e g i o n o f t h e P r o v i n c e . 3 : 2 At the over present the whole time, their they not Province the T o r o n t o has outer representatives are the has planning jurisdiction region. Metropolitan powers o v e r only extra-territorial thirteen local on represented the on municipalities. Metropolitan the planning Planning Metropolitan T h e y have Board, Council but that i s 24 empowered strong the to adopt a p l a n f o r t h e i r need f o r a r e - a p p r a i s a l o f f r i n g e areas It i s very and their clear this the the government the events i n the validity is also a structure i n of the Toronto. Metropolitan hypothesis of thesis. ^ M e t r o p o l i t a n Toronto Planning d u r e s , o p . c i t . , p . 5• Board There r e l a t i o n s h i p to M e t r o p o l i t a n that T o r o n t o A r e a have s u p p o r t e d area. B o a r d , Summary o f Proce- ^ W i l l i a m R. A l l e n , Q. C , "The P l a c e o f t h e P l a n n i n g i n t h e Community", C o m m u n i t y . P l a n n i n g R e v i e w , V o l . 12, No. 3" ( 1 9 6 2 ) , p . 23. CHAPTER V I SUMMARY AND This dity well t h e s i s has i n v o l v e d a p r o c e s s o f the h y p o t h e s i s , litan level which i s : f o r p l a n n i n g working r e l a t i n s h i p governments and l o c a l done b y t h e o r e t i c a l does n o t i n t e n d planning a t the metropo- suitably directions, be f o l l o w e d blems. this Although T h i s has b e e n studies. This thesis t h e s i s i s mostly t o d a y ' s numerous m e t r o p o l i t a n limited i n the scope to may be a p p l i e d a t l e a s t t o t o cover problems. only a small part of Many o t h e r p r o b l e m s , s u c h as t h e c o n f l i c t s between c e n t r a l urban m u n i c i p a l i t i e s , participation metropolitan citizen's between m e t r o p o l i t a n the proper and l o c a l pro- world. t h e s i s has been a b l e conflicts courses i n s o l v i n g our metropolitan p a r t s o f the democratic thorities, modified and t o p o i n t o u t what Canada, i t s f i n d i n g s a n d p r i n c i p l e s affairs, obtain t o propose any U t o p i a n i d e a s , b u t r a t h e r t r y t o some p r a c t i c a l This with bodies. r e s e a r c h and case of a c t i o n should other the v a l i - a r e a - w i d e g o v e r n m e n t a u t h o r i t y , a n d must a well co-ordinated give of t e s t i n g to-.',- be s u c c e s s f u l , i t must be i n t e g r a t e d i n t o a organized local CONCLUSIONS division city metropolitan and sub- i n metropolitan and l o c a l p l a n n i n g a u - o f government f u n c t i o n s governments, the proper between r o l e s o f upper governments i n s o l v i n g m e t r o p o l i t a n problems, e t c . , a r e n o t studied here. Therefore, a segment o f t h o s e this metropolitan t h e s i s has o n l y tried t o examine p r o b l e m s , and t o p r o p o s e a f e w 126 principles which should be followed a c t i o n to deal with metropolitan I . The In pointed rapid of as Theoretical Validity the consequences of u r b a n i z a t i o n i n the o f the the twentieth at the metropolitan m e t r o p o l i t a n problems e f f e c t i v e l y . the i n t e g r a t i o n of m e t r o p o l i t a n and the inability demands. Only efficient level solve can today's However, t h e n e c e s s i t y f o r planning function with a w e l l - government a u t h o r i t y has essential i n making m e t r o p o l i t a n p l a n n i n g sequence of r e a s o n i n g , been the metropolitan was p r o b l e m s have industrialization, organized to t h i s government Hypothesis century, g o v e r n m e n t s t o cope w i t h new regional planning proper problems. Chapter I, today's m e t r o p o l i t a n out local i n any been p r o v e d efficient. According the hypothesis of t h i s detailed s t u d i e s on the thesis established. I n Chapter I I , the r a p i d u r b a n i z a t i o n i n the metropolitan areas, and cope w i t h m e t r o p o l i t a n metropolitan planning twentieth the century, inability of problems prove and the local the of character of governments to that there a necessity for local causes i s a need f o r government re- organization. The r e s e a r c h on local government s t r u c t u r e of Canada, and the f o r m s of. m e t r o p o l i t a n government a u t h o r i t y in N o r t h A m e r i c a has a l s o proved that there well-organized metropolitan government tan problems. Finally, study the need f o r t h e the of i s a need f o r a to d e a l with metropoli- the f u n c t i o n s o f i n t e g r a t i o n of planning and planning, government i n 127 m e t r o p o l i t a n a r e a s , and the n e c e s s i t y f o r government re-orga- n i z a t i o n f o r p l a n n i n g e f f i c i e n c y a t the m e t r o p o l i t a n l e v e l proved the theoretical B a s e d on on the to t e s t the validity theoretical arguments i n Chapter the three W i n n i p e g , and of the validity II, Criteria The the Validity of the C r i t e r i a proposed used f o r the p u r p o s e s o f t e s t i n g recognized as A brief have b e e n worked comparison of used The been a l l o c a t e d to t e s t Greater i n Chapter f o r the the the three cases validity Be Vancouver, Metropolitan Area. i n the they been should studied i n this Criteria: as Vancouver R e g i o n a l single-purpose The I I have o r g a n i z a t i o n of o f the Organized the h o s p i t a l f u n c t i o n . e n c e o f many o t h e r proved out Criteria General-Purpose District districts s e e n by and only Regional the exist- boards i n the s e p a r a t i o n o f the area-wide Lower M a i n l a n d has Its in-effectiveness i n s a t i s f y i n g o t h e r m e t r o p o l i t a n needs c a n be function, and planning. M e t r o p o l i t a n Government S h o u l d Government. hypothesis the a c t u a l c a s e s , the p r i n c i p l e s m e t r o p o l i t a n government and c a n be of the Toronto. Although thesis hypothesis. c a s e s : the M e t r o p o l i t a n Areas o f II. a l s o be has planning Planning Board, h i g h l y u n d e r s i r a b l e i n terms o f e f f e c t i v e planning has im- plementation. B o t h the Metropolitan Corporation of Greater Winnipeg 128 and the M u n i c i p a l i t y of M e t r o p o l i t a n Toronto have demonstrated t h e i r e f f e c t i v e n e s s i n p r o v i d i n g a r e a - w i d e s e r v i c e s as purpose governments. This supports Metropolitan The tentiality the validity Government S h o u l d Greater Corporation those supports the responsibilities validity M e t r o p o l i t a n Government S h o u l d Accessible to I t s C i t i z e n s . Board of the local this Greater municipal is still The of Winnipeg have good to members on I t has legal them. Criterion II. Vancouver R e g i o n a l councils. the District and Regional are been p o i n t e d appointed out representation, being e l e c t i o n s o f t h e members on Metropolitan \. c i t i z e n s their metropolitan This po- services assigned Corporation that democratic supports 1 role and the Metropolitan of Greater M u n i c i p a l i t y of M e t r o p o l i t a n Toronto to ensure the i n doubt. direct Councils' o f the the has Powers. Remain C o n t r o l l a b l e b y The arrangement of i n d i r e c t or not, Legal of Greater the M u n i c i p a l i t y o f M e t r o p o l i t a n Toronto This in District I. more f u n c t i o n s . Metropolitan powers t o p e r f o r m and Criterion Have S u f f i c i e n t Vancouver R e g i o n a l been a s s i g n e d B o t h the by of t o e x e r c i s e i t s l e g a l powers t o p e r f o r m when i t has and general- a r e more promote c i t i z e n s 1 validity of likely participation affairs. the Winnipeg Criterion III. 129 Local Municipalities Should L o c a l G o v e r n m e n t s . and Encouraged. local I n the ning bodies cipal and are M o d i f i e d to Create Local Planning Functions Efficient Should M e t r o p o l i t a n Vancouver Area, m u n i c i p a l i t y has problems e x i s t Be are unable where been m o d i f i e d , i n t e r - m u n i c i p a l s e r v i c i n g increasing. The established local t o cope p r o p e r l y w i t h t h e s e up as a s t r o n g l y c e n t r a l i z e d ment, e s p e c i a l l y metropolitan i n terms o f i t s p l a n n i n g f u n c t i o n . ment f u n c t i o n s i n c r e a s e , i t i s d o u b t f u l t h a t t h i s g o v e r n m e n t w i l l be without efficient In able to handle local were c o n s o l i d a t e d i n t o was ments s h o u l d be modifying their This Geographic clearly based on made e f f i c i e n t lends support the governAs govern- metropolitan s e r v i c e s demanded the burden. thirteen municipali1, 1967 i d e a t h a t the i n performing Adequacy. to C r i t e r i o n The local • This local mo- govern- s e r v i c e s by IV. G r e a t e r Vancouver R e g i o n a l e x c l u d i n g some u r b a n i z e d Regional adequate geographic the M e t r o p o l i t a n A r e a . bodies January has boundaries. t h e Lower M a i n l a n d more t h a n the former s i x on a political jurisdiction while a l l the governments t o share Metropolitan Toronto, dification for plan- inter-muni- M e t r o p o l i t a n C o r p o r a t i o n of Greater Winnipeg been b u i l t has no problems. The ties Be P l a n n i n g Board jurisdiction develop areas possesses a i n terms o f p l a n n i n g I t i s d o u b t f u l as c o u l d f u n c t i o n t o g e t h e r and District an t o how these efficient two program 130 for the f u t u r e development o f the M e t r o p o l i t a n Vancouver The relatively tical Metropolitan Corporation good g e o g r a p h i c and p l a n n i n g of Greater jurisdiction jurisdictions Therefore, its This supports the v a l i d i t y of Criterion ning. Co-operation It Toronto. Regional ning o f f i c i a l s , Be R e s e a r c h , the O f f i c i a l Regional a good w o r k i n g r e l a t i o n s h i p and p r o v i d e s Plan- and A s s i s t a n c e . P l a n n i n g B o a r d has c a r r i e d s t u d i e s and p r e p a r e d a l s o maintains Should V. and C o - o r d i n a t i o n , and Advice Lower M a i n l a n d when and p l a n - problems. Metropolitan Planning Functions prehensive the p o l i t i c a l f o r the M u n i c i p a l i t y t o handle Basic The i n terms o f i t s p o l i - of the M u n i c i p a l i t y of Metropolitan i t i s also d i f f i c u l t area-wide Winnipeg has a control. Urban development has exceeded ning Area. with o u t comPlan. local plan- assistance to l o c a l m u n i c i p a l i t i e s requested. The Planning Division of the Metropolitan of Greater W i n n i p e g has a l l t h e p l a n n i n g the Area. I t has worked o u t c o m p r e h e n s i v e the Official not co-operate palities except The responsibilities i n M e t r o p o l i t a n Development P l a n . with or provide the C i t y Corporation s t u d i e s as w e l l as However, i t does a s s i s t a n c e t o the l o c a l munici- of Winnipeg. M e t r o p o l i t a n Toronto P l a n n i n g B o a r d has s t u d i e d i t s A r e a e x t e n s i v e l y , a n d has b e e n a b l e to prepare p l a n w h i c h was a d o p t e d b y t h e M e t r o p o l i t a n a metropolitan C o u n c i l as a s t a t e - 131 ment o f i t s o b j e c t i v e s . very I t has not sound w o r k i n g r e l a t i o n s h i p However, t h e been a b l e with local Planning Board provides to b u i l d planning up a bodies. a s s i s t a n c e to l o c a l muni- cipalities . This The supports p u r e l y an suggestions is of Greater The o n l y on Criterion this Have The VI. Power o f R e v i e w Regional Planning L o c a l planning bodies a voluntary basis. Planning Division Winnipeg i s the Therefore, i t s success implementation. of the M e t r o p o l i t a n only planning Board adopt i t s Therefore, i n terms of area-wide p l a n n i n g Metropolitan Area. Corporation a u t h o r i t y i n the i t does n o t have any whole difficulty regard. The power o v e r be of Lower M a i n l a n d a d v i s o r y body. also limited The in validity M e t r o p o l i t a n P l a n n i n g Body S h o u l d Over L o c a l P l a n s . is the Metropolitan Toronto local plans. more r e a d i l y This P l a n n i n g B o a r d has Therefore, the review area-wide o b j e c t i v e s can ensured. supports the validity of C r i t e r i o n VTI. o A brief b a s e d on the comparison of the Criteria can be three presented Metropolitan i n Table V on Areas the next page. III. The The success Validity of the of p l a n n i n g h i g h l y d e p e n d e n t upon t h e as Hypothesis a f u n c t i o n o f government i s s t r u c t u r e o f the government. There- 132 TABLE V A COMPARISON Criteria OP THREE METROPOLITAN AREAS BASED ON THE CRITERIA Metro Vancouver Area Metro Winnipeg Area Metro T o r o n t o Area Metro. Govt. Authority: I MultiFunction poor excellent excellent II fair good good fair excellent good fair fair excellent fair excellent poor fair good poor good poor good excellent excellent fair good excellent good poor excellent excellent III Power Control IV LocalGovernment V Area Metro, and Local Planning: III Control IV LocalPlanning V Area VI Metro.Planning VII Power 133 fore, i f p l a n n i n g i n m e t r o p o l i t a n a r e a i s t o be s u c c e s s f u l , i t must be a t t a c h e d t o w e l l - o r g a n i z e d m e t r o p o l i t a n a n d l o c a l governments w i t h a p r o p e r d i v i s i o n them. In a democratic society, division o f government powers b e t w e e n the c r u c i a l o f g o v e r n m e n t powers l i e s issue i n the areal i n t h e achievement r e s p o n s i b l e and r e s p o n s i v e system o f government. ker attempts reproduced | t o p o r t r a y t h i s problem below: Paul of a Ylvisa- i n the c h a r t which i s 1 the Rationale for an Areal Division of Governmental Powers within the Modern Democratic State INSTRUMENTAL VALUES BASIC VALUES OF T H E AREAL Individual Gives LIBERTY —by (Constitutionalism, goodly admixture faire) with a o f laissez- WVKIOH Of POWERS ... - .v. I.e., The means b y w h i c h orfp ts p r e s u m e d t o realize t h e g i v e n b a s i c v o i c e s ; e x p r e w s d i n terms o f t h e : further providing assurance " V , " Governmental P r t e w * ef protection additional a n d more a v a i l a b l e points o f access, pressure, and against arbitrary readity or hasty governmental action?''-' i twriileivmfipg)power — b y . p r o v i d i n g a system o f control; a m o n g g o v e r n m e n t a l JeveJv a s s u r i n g rViirfion a n d — b y m a k i n g It possible f o r minorities t s a v a i l debate/ themselves o f g o v e r n m e n t a l position a n d p o w e r ; — b y c r e a t i n g a network o f campo Hrrfej»ts/ t o l o - — b y serving t o k e e p g o v e r n m e n t a l p o w e r c l o s e c a l i z e HI* w h i c h m a y b e s e f t t e l ^ y - j t ^ t i e . ! ' ;." • '[ : .. 1 t o its o r i g i n s , a n d g o v e r n m e n t a l officials witltfrJ r e a c h o f their masters. EQUALITY (Especially a s e m b o d i e d i n Its c o r o l l a r y o f d e m o c r a c y a n d the a x i o m o f wide-scale p a r t i c i p a tion) O n t h e negative s i d e , p r o v i d e s a further b a r r i e r t o the concentration o f Social, economic, a n d p o l i t i c a l power. • O n the positive side, p r o v i d e s o d d i t j e u o j a n d more r e a d i l y a v a i l a b l e o p p o r t u n i t i e s forparticipation O i a means o f contributing t o the development both o f t h e i n d i v i d u a l ( i n the A r i s t o t e l i a n t r a d i t i o n o f citizenship) a n d o f p u b l i c p o l i c y . WELFARE G i v e s further assurance of: —responsiveness awl —energy a n d "collective v-j.v-. ' flexibility? p wisdom"; * —consent a n d loyalty • '•>*•• f- • G i v e s further assurance tTiai gover)rpYofttdl a c t i o n A d d i t i o n a l assurance that d e m a n d s w i l l b e h e a r d w i l l b e effective ( g r a n t e d the t r a i o * lhifei_=l.iriniedl*' a n d that needs w i l l be served. a t e l y a b o v e ) , arid that pertorrrwince v«fl . b e more efficient, i n a c c o r d w i t h t h e administrative Djihclples (service) •ft 1 .': ' .. —scale; < ' . • ,.^$> —delegation; .' . —decentralization; " "-v —specjaSiotieri; — t h e ' a v a i l a b i l i t y a n d yardstick effect ef comp a r a t i v e costSi P a u l Y l v i s a k e r , "Some C r i t e r i a f o r a ' P r o p e r ' A r e a l D i v i s i o n o f G o v e r n m e n t a l Powers", R e g i o n a l D e v e l o p m e n t a n d P l a n n i n g , J . P r i e d m a n n a n d W. A l o n s o , e d i t o r s (Cambridge, M a s s a c h u s e t t s : The M. I . T. P r e s s , 1 9 6 4 ) , p . 5 2 4 . 134 As noted, values an the p r o b l e m i s t o d e v i s e of l i b e r t y , optimum b a s i s thesis has It t o be If t h a t the A Further a community S t u d y : The chooses Although governments. t h a t w i t h i n the V, of This problem. t h e s i s has been Province t o p l a n , i t must i m p l e m e n t s u i t e d t o assume t h e the role This fact of local It is the the responsibility governments i n d e a l - has lies been found The vital ability The t o o l s which the money t h e y s p e n d , and d e t e r m i n e d by of l o c a l The British Canada, a s s i g n s in a l l matters r e l a t i n g to the p r o v i n c i a l to property and and can u t i l i z e , over the the to a great provinces. governments and me- g o v e r n m e n t s t o meet e x e r c i s e , are a c t i o n s o f the nature, thesis: I I I , . IV, North America A c t , which i s the of matters of a l o c a l in this the provin- c o n d i t i o n e d by localities t h e powers t h e y the the roles i n solving their development problems i s l a r g e l y province. with Areas s t u d i e d i n Chapters have p l a y e d t r o p o l i t a n problems. extent Role complex d i f f i c u l t i e s three the p r o v i n c e s critical of t h i s on m e t r o p o l i t a n p r o b l e m s i n Canada i s i n d i s p e n s a b l e , t o s o l v i n g the cial to resolve this hypothesis realized of powers. through i t s o r g a n i z a t i o n a l s t r u c t u r e . for planning. key c o u l d be basic valid. government which i s b e s t ing with welfare areal division d e m o n s t r a t e d a way IV. decision t h r o u g h an is felt supported e q u a l i t y , and t h e means whereby t h e civil constitution sovereignty rights, a l l crown l a n d s in a l l and re- 135 sources. T h e r e f o r e , p l a n n i n g as i t r e l a t e s r e s o u r c e s , and p u b l i c and p r i v a t e p r o p e r t y , to communities, i s also a provin- p cial are responsibility. T h e r e i s no d o u b t t h a t i f l o c a l i t i e s to f u n c t i o n well, framework t h e p r o v i n c e must p r o v i d e and many o f t h e means f o r them t o do A c t i o n s of the p r o v i n c e blems to these in detail. what d i r e c t i o n s (1) i t s historical problems; (3) and, local (2) a judgement to serve The p r o v i n c e pulling intensity projections on s e v e r a l f a c t o r s : development of m e t r o p o l i t a n problems; of l o c a l of c o n t r o l over In order t o make to guide c a n , and must, p r o v i d e and of economic, this metropolitan unified i n f o r m a t i o n , making social and growth. dimension— province-wide and p h y s i c a l d e v e l o p m e n t and f o r m u l a t i n g i m a g i n a t i v e , w e l l - t h o u g h t - o u t local intelli- i s a need f o r u n i f y i n g p r i n c i p l e s as a f r a m e w o r k together facts thesis or not the m u l t i p l i c i t y i s causing a loss pro- f a r , and i n i n d e a l i n g with urban on w h e t h e r there of t h i s o f how go depends of the m e t r o p o l i t a n a r e a . judgements, policies should experience the r e l a t i v e governments problems gent to deal with metropolitan Determination a province proper so. c a n be many; b u t i t i s n o t t h e i n t e n t i o n study the development trends, goals. U n i v e r s i t y o f B r i t i s h C o l u m b i a , D i v i s i o n o f Community a n d R e g i o n a l P l a n n i n g , P l a n n i n g f o r R e g i o n a l Development i n B r i t i s h Columbia (Vancouver, S p r i n g , 1 9 6 5 ) , p . 1. C o u n c i l o f S t a t e G o v e r n m e n t s , "The S t a t e s ' R o l e i n U r b a n D e v e l o p m e n t " , M e t r o p o l i t a n P o l i t i e s , M. N. D a n i e l s o n , e d i t o r ( B o s t o n a n d T o r o n t o : L i t t l e , Brown and Comapny, i 9 6 0 ) , pp. 315-316. 136 However, t h e r o l e pal affairs of the provinces has b e e n c a p r i c i o u s . for continuous, The provincial or periodic No p r o v i n c e review cities One o f t h e r e a s o n s of p u b l i c o f f i c i a l s has f o rthis i s the . i r c o n t i n u e d r u r a l t h a t the metropo- government r e - o r g a n i - l a c k o f sympathy orientation. to place a high p r i o r i t y with The w i l l i n g n e s s on u r b a n problems n o t y e t c a u g h t up w i t h t h e p o p u l a t i o n movements o f t h e last twenty o r t h i r t y years. I t i s true that the Conservative Government i n M a n i t o b a , t h e P r o g r e s s i v e in problems. i s s u e s , o r t h a t the problems s e r i o u s enough t o warrant e f f e c t i v e zation. makes p r o v i s i o n of i t s municipal g o v e r n m e n t s seem u n c o n v i n c e d l i t a n problems a r e h i g h p r i o r i t y are o f Canada i n m u n i c i - O n t a r i o , and the S o c i a l Conservative Government C r e d i t Government i n B r i t i s h Columbia 4 are built upon s t r o n g r u r a l Another reason why c i t i e s hearing a t the p r o v i n c i a l under-represented level i nprovincial urban u n d e r - r e p r e s e n t a t i o n question of r e - d i s t r i b u t i n g The provincial support. fail to get a i s because they legislatures. i s due t o c o n t i n u e d seats i n p r o v i n c i a l sympathetic generally are Some o f t h i s inaction on t h e legislatures. governments c o u l d undertake w h o l e s a l e re-distri- b u t i o n b u t i t i s e a s i e r a n d sometimes s a f e r t o do n o t h i n g . ^ Despite Harold this general pattern of p r o v i n c i a l Kaplan, The R e g i o n a l B r o a d c a s t i n g C o r p o r a t i o n , 1965), 5 Ibid. City p . 18. (Toronto: inaction, Canadian 137 the Canadian r e c o r d American. part, The s i t u a t i o n i n the in their United somewhat b e t t e r d e a l cities Canadian c i t i e s and party do from t h e i r have had o f t e n the t h e y have t h e obstacles ing systems i n our neither governments. the direct legisla- As a get a than result, the federal assistance. t h a t , under the provinces are to nor present too powerful r e f o r m e r s who stupid. The But the dismiss prevail- deep-seated a t t i t u d e s obstacles They a r e convinced problems "politics". reflect are real, to reform numerous, and are and overcome. metropolitan be as mere provinces However, t o f i n d should and s o l u t i o n s to metropolitan self-interest. trivial difficult planners to reform understandable and seeking Canadian f e d e r a l i s m , the with state by-passed.^ Too that under-repre- l e s s incentive f o r by-passing i n Canada a l s o r e a l i z e t o be Urban the most Most C a n a d i a n c i t i e s state The of f o r the f r o m t h e i r p r o v i n c i a l governments g o v e r n m e n t s and status States, c o n t r o l o f the provincial cities i s b e t t e r than t h a n i n Canada. i s u s u a l l y more r u r a l - b a s e d . 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McKeown, e d i t o r s ( B o s t o n : H o u g h t o n M i f f l i n Company, 1 9 6 4 . . " U r b a n i z a t i o n and U r b a n i s m i n t h e U n i t e d S t a t e s , " U r b a n i s m and U r b a n i z a t i o n , N e l s A n d e r s o n , e d i t o r . Netherlands: E . J . B r i l l , L e i d e n , 1 9 6 4 . 'Pp. 159-173Wonders, W. C. "The P o t e n t i a l o f R e g i o n a l P l a n n i n g , " P l a n n i n g R e v i e w . V o l . 1 2 , No. 2 ( 1 9 6 2 ) , p p . 2 8 - 3 2 . Community Wood, R o b e r t C. "The W o r l d o f The M e t r o p o l i t a n G i a n t s , " The C h a n g i n g M e t r o p o l i s . F . J . T i e t z e and J . E . McKeown, e d i tors. Boston: H o u g h t o n M i f f l i n Company, 1 9 6 4 . Pp. 4 5 - 5 O . Y l v i s a k e r , Paul. "Some C r i t e r i a f o r A ' P r o p e r ' A r e a l D i v i s i o n o f Governmental Powers," R e g i o n a l Development a n d P l a n n i n g , J . F r i e d m a n n a n d W. A l o n s o . e d i t o r s . Cambridge: The M. I , T. P r e s s , 1 9 6 4 . Pp. 5 1 9 - 5 4 3 - 143 C. GOVERNMENT PUBLICATIONS A d v i s o r y Commission on I n t e r g o v e r n m e n t a l R e l a t i o n s . Alternative Approaches t o Governmental R e - o r g a n i z a t i o n i n M e t r o p o l i t a n Areas. W a s h i n g t o n , D. C : U. S. Government P r i n t i n g O f f i c e , J u n e , 1962. . Performance o f Urban F u n c t i o n s : L o c a l and A r e a wide. W a s h i n g t o n , D. C. U. S. Government P r i n t i n g O f f i c e , September, 1963. Canada, D o m i n i o n B u r e a u o f S t a t i s t i c s . Census o f Canada Population. Ottawa: Dominion Bureau o f S t a t i s t i c s , 1966: 1967. C h u r c h i l l , D e n n i s M. L o c a l Government a n d A d m i n i s t r a t i o n i n The Lower M a i n l a n d M e t r o p o l i t a n Community. V o l . I a n d I I . Vancouver: M e t r o p o l i t a n J o i n t Committee, 1959K e r r , Donald, and Jacob S p e l t . The C h a n g i n g F a c e o f T o r o n t o • Ottawa: G e o g r a p h i c a l B r a n c h , Mines and T e c h n i c a l S u r v e y s , 1965. Lower M a i n l a n d R e g i o n a l P l a n n i n g B o a r d . A_ P r o p o s a l f o r A M e t r o p o l i t a n V a n c o u v e r a n d R e g i o n T r a n s p o r t a t i o n Programme• A p r e s e n t a t i o n a t t h e August G e n e r a l M e e t i n g . New Westminster: LMRPB, A u g u s t 2 4 , I 9 6 7 . . A n n u a l R e p o r t 1966. New W e s t m i n s t e r : LMRPB, J a n u a r y , . A n n u a l R e p o r t 1967. New W e s t m i n s t e r : LMRPB, 1967. 1968. January, . Chance a n d C h a l l e n g e . December, New W e s t m i n s t e r : 1963- . Dynamics o f R e s i d e n t i a l L a n d S e t t l e m e n t . minster: LMRPB, J u n e , 1963. .Industrial Region of B r i t i s h November, 1961. . British . T955. LMRPB, New West- L a n d P r o s p e c t s i n The Lower M a i n l a n d Columbia. New { W e s t m i n s t e r : LMRPB, M a n u f a c t u r i n g I n d u s t r y i n The Lower M a i n l a n d o f Columbia. Official New W e s t m i n s t e r : Regional Plan. LMRPB, J a n u a r y , New W e s t m i n s t e r : i960, LMRPB, 144 . P o p u l a t i o n T r e n d i n T h e L o w e r M a i n l a n d 1921-1986: Summary R e p o r t . New W e s t m i n s t e r : LMRPB, A p r i l , i960. . The Greater Vancouver Westminster: LMRPB, A p r i l , . LMRPB, Martin, The The Lower November, Mainland 1952. Metropolitan 1954. Looks Ahead. Community. New New Westminster: Roscoe C, Metropolis i n Transition. Washington, U. S. H o u s i n g a n d Home F i n a n c e A g e n c y , S e p t e m b e r , D. C : 1963. M e t r o p o l i t a n Planning Commission o f Greater Winnipeg. Greater W i n n i p e g 1981: A Study o f P o p u l a t i o n Growth. Winnipeg: M e t r o p o l i t a n Planning Commission o f Greater Winnipeg, April, 1957. National Survey o f Metropolitan Planning. W a s h i n g t o n , D. C . : T h e U. S. H o u s i n g a n d Home F i n a n c e A g e n c y , O f f i c e o f M e t r o p o l i t a n Development, 1963Province 255. of B r i t i s h Victoria: Columbia,. R.S.B.C., Queen's P r i n t e r . . T h e B . C. G a z e t t e . Q u e e n ' s P r i n t e r , J u l y 13, V o l . CVTI, 1967- Municipal Act, No. 28. Victoria: , Department of Municipal Affairs. Local i n B r i t i s h Columbia. Victoria: Department of Affairs, 1961T Province o f Manitoba. Metropolitan Winnipeg Act, and Amendments. Winnipeg: Queen's P r i n t e r . Chapter Government Municipal Chapter 40 , Department o f I n d u s t r y a n d Commerce. Survey Report: I n d u s t r i a l and Economic Potential of Greater Winnipeg. Winnipeg: Department o f I n d u s t r y a n d Commerce, A u g u s t , 1957. , Greater Winnipeg I n v e s t i g a t i n g Commission. and Recommandations, V o l . I . Winnipeg: Greater I n v e s t i g a t i n g Commission, 1959- Report Winnipeg Province of Ontario. Revised Status o f O n t a r i o , The M u n i c i p a l i t y o f M e t r o p o l i t a n T o r o n t o A c t , C h a p t e r 260' a n d A m e n d ments . Toronto: Queen's P r i n t e r . 296 . Revised Status o f O n t a r i o , The P l a n n i n g A c t , a n d Amendments. Toronto: Queen's P r i n t e r . Chapter 145 S t a t e m e n t b y The H o n o u r a b l e John R o b a r t s . P r i m e M i n i s t e r o f Ontario. Re R e p o r t o f t h e R o y a l Commission on M e t r o p o l i t a n Toronto. Toronto: Queen's P a r k , J a n u a r y 1 0 , 1 9 6 6 . The J o i n t C e n t e r f o r U r b a n S t u d i e s o f The M a s s a c h u s e t t s I n s t i t u t e o f T e c h n o l o g y and H a r v a r d U n i v e r s i t y . The E f f e c t i v e ness o f M e t r o p o l i t a n P l a n n i n g . W a s h i n g t o n , D. C : U. S. Government P r i n t i n g O f f i c e , June 3 0 , 1 9 6 4 . The M e t r o p o l i t a n C o r p o r a t i o n o f Greater Winnipeg. p o r t s 1961-1968'. Winnipeg: The M e t r o p o l i t a n of G r e a t e r Winnipeg. . Metropolitan G r e a t e r Winnipeg. . Metro. Winnipeg. Winnipeg: The M e t r o . Co. o f The M e t r o p o l i t a n D e v e l o p m e n t P l a n . Winnipeg: Co. o f G r e a t e r W i n n i p e g , A p r i l , 1 9 6 8 . , Planning Division. A Report peg I n d u s t r i a l L o c a t i o n . Winnipeg: A u g u s t 2 5 , 1964. The on M e t r o p o l i t a n W i n n i Planning D i v i s i o n , . D r a f t Development P l a n o f Winnipeg. Planning D i v i s i o n , 1963. . M e t r o p o l i t a n Winnipeg P o p u l a t i o n Winnipeg: Planning Division. The A n n u a l ReCorporation Winnipeg: 1961-1968. Study: M u n i c i p a l i t y of Metropolitan Toronto. 1967 The New M e t r o p o l i t a n Toronto. Toronto: The m u n i c i p a l i t y .of M e t r o p o l i t a n Toronto, 1967. . M e t r o p o l i t a n P l a n f o r The M e t r o p o l i t a n Planning Area. Toronto: The.Muni, o f Metro. December, 1 9 6 6 . . . Toronto Toronto, . M e t r o p o l i t a n P l a n f o r The M e t r o p o l i t a n T o r o n t o Planning Area: Supplement. Toronto: The Muni, o f M e t r o . T o r o n t o , December, 1 9 6 6 . , M e t r o p o l i t a n Toronto Planning Board. 10 y e a r s o f Progress: M e t r o p o l i t a n Toronto 1953-1963. Toronto: Metro. Toronto Planning Board, 1963. • M e t r o p o l i t a n Key F a c t s . Planning Board, January, 1968. . Metropolitan Toronto Planning Board, J u l y , 1967. Toronto: 1967. Metro- Toronto: Toronto Metro. Toronto 146 . Area. I9S5. O f f i c i a l P l a n o f The M e t r o p o l i t a n T o r o n t o P l a n n i n g T o r o n t o : M e t r o . T o r o n t o P l a n n i n g B o a r d , December, . Summary o f P r o c e d u r e s o f The M e t r o p o l i t a n T o r o n t o P l a n n i n g B o a r d E f f e c t i v e A p r i l 1, 196*7"" Toronto:. Metro. T o r o n t o P l a n n i n g B o a r d , May 1, I 9 6 7 . Vancouver, C i t y P l a n n i n g Department. V a n c o u v e r ' s C h a n g i n g Population. Vancouver: C i t y P l a n n i n g Dept., June, 1964. 14? D. PROCEEDINGS Bromage, A r t h u r . " R e p r e s e n t a t i o n i n M e t r o p o l i t a n Government," P r o c e e d i n g s , 6 3 r d N a t i o n a l C o n f e r e n c e on Government. Nat i o n a l M u n i c i p a l L e a g u e , 1958"". Knapp, E . H. " E c o n o m i c , S o c i a l , and C u l t u r a l D e v e l o p m e n t o f Center C i t y , " Emerging C i t i e s of America. Proceedings of The Government R e l a t i o n s a n d P l a n n i n g P o l i c y C o n f e r e n c e a t W a s h i n g t o n , D. C., J a n u a r y 22-24, 1 9 6 5 . Chicago: American I n s t i t u t e of Planners, 1965. Pp. 7 3 - 8 0 . Moore, V. J . "The S t r u c t u r e o f P l a n n i n g and R e g i o n a l D e v e l o p ment," E m e r g i n g C i t i e s o f A m e r i c a . P r o c e e d i n g s o f The Government R e l a t i o n s a n d P l a n n i n g P o l i c y C o n f e r e n c e , 1 9 6 5 . Chicago: A. I . P., 1 9 6 5 Pp. 1-17Wirth, Louis. "The M e t r o p o l i t a n R e g i o n as A P l a n n i n g U n i t , " N a t i o n a l C o n f e r e n c e on P l a n n i n g . P r o c e e d i n g s o f t h e Conf e r e n c e h e l d a t I n d i a n a p o l i s , I n d i a n a , May 2 5 - 2 7 , 1 9 4 2 . Chicago: American S o c i e t y o f P l a n n i n g O f f i c i a l s , 1942. Pp. 1 4 1 - 1 5 1 - 148 E. REPORTS A l l e n , W. R. Metropolitan Toronto —- A Successful Metroplex, An a d d r e s s t o t h e A d v a n c e d A d m i n i s t r a t i o n I n s t i t u t e , Harv a r d U n i v e r s i t y o n J u l y 21, 1967Scott, Stan the P a c 24-25, Adminis fornia, ley (ed.). Metropolitan Area Problems. Report of i f i c Coast Conference on Metropolitan Problems, July 1958. Berkeley, California: Bureau of Public tration and U n i v e r s i t y Extension, University of C a l i - i960. 149 F . UNPUBLISHED MATERIALS Oike, Perry. "Winnipeg." Term P a p e r p r e p a r e d f o r A r c h i t e c t u r e 425 i n t h e . U n i v e r s i t y o f B r i t i s h C o l u m b i a , V a n c o u v e r , 1 9 6 6 . P e r r y , P e r c y A. "Power, F u n c t i o n a n d R e g i o n : A Study of Three F a c t o r s i n R e g i o n a l Development." Unpublished Master's t h e s i s , the U n i v e r s i t y o f B r i t i s h Columbia, Vancouver, 1967. U n i v e r s i t y o f B r i t i s h C o l u m b i a , D i v i s i o n o f Community and Regional Planning. " P l a n n i n g f o r R e g i o n a l Development i n B r i t i s h Columbia." Vancouver: U, B. C , D i v . o f Community and R e g i o n a l P l a n n i n g , S p r i n g , 1965>«; W a k e l i n , C h a r l e s H. "The E f f e c t i v e n e s s o f A M e t r o p o l i t a n A g e n c y i n I m p r o v i n g The L o c a l M u n i c i p a l P l a n n i n g P r o c e s s ; An E v a l u a t i o n o f The Case i n M e t r o p o l i t a n V a n c o u v e r . " Unp u b l i s h e d M a s t e r ' s t h e s i s , The U n i v e r s i t y o f B r i t i s h Columbia, Vancouver, 1966. 15© G. V a n c o u v e r Sun. NEWSPAPER September H. 10, 1968. Pp. 1 and 6. INTERVIEW McLean, J i m . P e r s o n a l i n t e r v i e w h e l d a t t h e G r e a t e r R e g i o n a l D i s t r i c t , V a n c o u v e r , A u g u s t 9, I 9 S 8 . Vancouver 151 APPENDIX THE QUESTIONAIRRE SENT TO THE LOWER MAINLAND REGIONAL PLANNING BOARD, THE PLANNING DIVISION.OP THE METROPOLITAN CORPORATION OP GREATER WINNIPEG, AND THE METROPOLITAN TORONTO PLANNING'. BOARD I N JULY, 1 9 6 8 . . 1. Please describe the present geographic area covered by y o u r a g e n c y o r r e f e r me t o a p u b l i c a t i o n where I c a n o b t a i n this information. 2. When a n d u n d e r what l e g i s l a t i o n was y o u r a g e n c y 3. (a) I s your agency a t t a c h e d to a metropolitan established? or regional government? (b) Yes ( ) No ( ) Have t h e r e litan 4. to 5. ( ) No ( ) list legislation? been any o f f i c i a l i n q u i r i e s Please 20 years? list. the major f u n c t i o n s o f your agency o r r e f e r a p u b l i c a t i o n where I c a n o b t a i n t h i s Please i n t o metropo- o r r e g i o n a l government i n t h e p a s t Yes Please When a n d u n d e r what describe me information. t h e main t e c h n i c a l and a d m i n i s t r a t i v e divi- s i o n s o f y o u r a g e n c y o r r e f e r me t o a p u b l i c a t i o n where I can 6. obtain this information. A p p r o x i m a t e l y how many p e o p l e a r e n o r m a l l y employed by y o u r agency? 7. Have y o u r p r e p a r e d plan? a comprehensive m e t r o p o l i t a n or regional 152 8. Yes ( ) No ( ) Please give t i t l e and date of publication. Has t h e c o m p r e h e n s i v e m e t r o p o l i t a n o r r e g i o n a l p l a n been adopted? Yes ( ) Date? No ( ) Can y o u r e f e r me t o a n y p u b l i c a t i o n o r n e w s p a p e r stories 9. that w i l l e x p l a i n why? Have y o u i n y o u r own o r i n c o o p e r a t i o n w i t h o t h e r agencies prepared any m e t r o p o l i t a n o r r e g i o n a l p l a n s specific function such f o ra as t r a n s p o r t a t i o n , s h o r e l i n e , r e c r e a t i o n , etc? 10. Yes ( ) No ( ) (a) (b) Please ; 11. title and d a t e Have a n y o f t h e s p e c i f i c cially adopted? Yes ( ) No ( ) Please of publication. f u n c t i o n a l plans been offi- f u n c t i o n a l plans not o f f i - list. Have a n y o f t h e s p e c i f i c cially •> list adopted n e v e r t h l e s s i n your o p i n i o n been used as a guide ? Yes ( ) No ( ) Are there Please list. any o t h e r a g e n c i e s c a r r y i n g on c e r t a i n i n this metropolitan area also l a n d use and t r a n s p o r t a t i o n p l a n n i n g functions on an a r e a - w i d e Yes ( ) Please No ( ) basis? g i v e name a n d a d d r e s s . 153 12. Please give t h e names o f t h e l o c a l municipalities 13« Please list planning bodies w i t h i n your metropolitan area. your p u b l i c a t i o n s i n the past years that w i l l probably their prices. of the three to five be r e l e v a n t t o my r e s e a r c h a n d THANK YOU VERY MUCH'
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Metropolitan government and planning : a case study of selected metropolitan areas in Canada Lee, Eugene Lieh-Jing 1969
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Title | Metropolitan government and planning : a case study of selected metropolitan areas in Canada |
Creator |
Lee, Eugene Lieh-Jing |
Publisher | University of British Columbia |
Date Issued | 1969 |
Description | In the twentieth century, we are experiencing rapid urbanization and metropolitanization in North America. Following this metropolitan area explosion are the severe social, human, and physical problems that have occured in our big urban areas. Solutions of these problems are inhibited by the complex structure of local governments in metropolitan areas. The problem is described as too many governments and not enough government. Today, regional planning deals not only with the problem of resource development, but also with the development of metropolitan areas. However, if metropolitan planning is to be effective, it must be integrated into a formal area-wide political structure with legitimate power. Thus, the hypothesis is established: for planning at the metropolitan level to be successful, it must be integrated into a well organized area-wide government authority, and must obtain a well-co-ordinated working relationship with suitably modified local governments and local planning bodies. Cities of our time are governed by two kinds of gravitational forces: forces of concentration (centripetal), and forces of dispersal (centrifugal). The inter-action of these two trends produces a new form of settlement called the metropolis. This phenomenon is the result of the scientific and technological advances of the past century. The spread of population outward from the core has brought with it a corresponding decentralization of the government pattern. New units of local government have multiplied with astonishing rapidity in the outlying areas. Metropolitan problems, such as water supply, sewage disposal, open space, transportation, unbalanced taxation, cannot be met without some fairly substantial institutional changes and comprehensive planning on an area-wide basis. In Canada, we have generally used a committee system for our local government organization. However, our local governments are unable to deal with these recently developed metropolitan problems. They have to be re-organized; and the attempts to re-organize local governments have been along the following lines: (1) inter-governmental arrangements; (2) special-purpose authorities; (3) annexation or consolidation; and, (4) city-county separation and consolidation. However, none of these attempts has furnished a satisfactory solution to the manifold problems involved in the development of the metropolitan area as a whole. Although community planning can be traced back to ancient times, the modern era of city planning began in this century. Today, city planning has been recognized as an aspect of the process of local government. However, regions of high population density and complex urban development activities require a responsible planning function for the development of regional interests. The metropolitan planning agency should seek establishment and acceptance of goals, both long-range and immediate, for the metropolitan area's physical, economic, and social development. It should strive to co-ordinate local planning, both public and private. The most desirable arrangement is that the metropolitan planning function is integrated into an area-wide and multi-functional government. By this, the planning function can more easily be tied into the programs and decision-making processes of an on-going body that has operational powers. We desire efficient government. Large-scale, metropolitan wide organization is not the most appropriate scale of organization for the provision of all public services required in a metropolis. Local governments still have vital roles to play in the lives of their citizens and in these roles they should be conserved. However, municipalities can be made more nearly equal in size through consolidation and amalgamation to strengthen the capacity of their local governments. Then, a division of functions between the "metropolitan" government and the "local" governments is necessary. The same argument is that reasonable distinction can be drawn between the concerns of metropolitan planning and those of local community planning. Duties and authorities must be appropriate to area, population, and financial resources. Only when all of these factors are balanced at the highest level, will community satisfaction be maximized. Based on the theoretical findings, the Criteria for the purposes of testing the actual cases can be derived as in the followings: I. Metropolitan government authority should be organized as general--purpose government. II. Metropolitan government authority should have enough legal powers to perform services. III. Metropolitan government authority should remain controllable by and accessible to its citizens. IV. Local municipalities should be modified to make efficient local governments, and local planning functions should be encouraged. V. Geographic adequacy. VI. Basic metropolitan planning function should be research, planning, co-operation and co-ordination, and advice and assistance. VII. Metropolitan planning body should have power of review over local plans. Three actual cases are studied based on Criteria to test the hypothesis on its practical grounds. The three cases are Metropolitan Vancouver Area, Metropolitan Winnipeg Area, and Metropolitan Toronto Area. The three metropolitan government authorities are studied under Criteria I to V; and the planning functions are studied under Criteria III to VII. The study both in depth and in scope of these three metropolitan areas is able to prove the validity of the Criteria which are derived from the theoretical findings. Therefore, the hypothesis is properly proved to be both theoretically and practically valid. In Canada, the provinces have vital roles to play in resolving our metropolitan problems. However, this should be the subject of another work. |
Subject |
Metropolitan areas -- Canada Local government -- Canada |
Genre |
Thesis/Dissertation |
Type |
Text |
Language | eng |
Date Available | 2011-06-16 |
Provider | Vancouver : University of British Columbia Library |
Rights | For non-commercial purposes only, such as research, private study and education. Additional conditions apply, see Terms of Use https://open.library.ubc.ca/terms_of_use. |
DOI | 10.14288/1.0104193 |
URI | http://hdl.handle.net/2429/35525 |
Degree |
Master of Arts - MA |
Program |
Planning |
Affiliation |
Applied Science, Faculty of Community and Regional Planning (SCARP), School of |
Degree Grantor | University of British Columbia |
Campus |
UBCV |
Scholarly Level | Graduate |
Aggregated Source Repository | DSpace |
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