Applied Science, Faculty of
Community and Regional Planning (SCARP), School of
DSpace
UBCV
Kidnie, Janet Lynn
Master of Arts in Planning - MA (Plan)
University of British Columbia
The move toward establishing regional government in Ontario reflects the recognition by both local and provincial governments of the inadequacies of the present governmental structure to deal with development issues of a regional nature. The requirements of a rapidly urbanizing and growing population are those whose discussion and provision is most efficiently made by a form of government larger than the existing municipality and smaller than the provincial government. The hypothesis states that altering the provincial departmental organization is a necessary prerequisite to successful establishment of the planning function within the regional government. It is based on the argument that with the creation of regional government throughout the province, the existing operational framework of the departmental organization of the provincial government is not sufficiently coordinated to deal with planning issues for regional development. To defend the argument, documentation and analysis is made of the development of both local and provincial government. This gives a back ground upon which to establish how and why there may be problems in coordinating the implementation of planning policy for regional development and to make suggestions of possible changes.
THE EVOLUTION OF REGIONAL PLANNING AND GOVERNMENT IN THE PROVINCE OF ONTARIO by J a n e t L. K i d n i e B.A., U n i v e r s i t y of T o r o n t o , 1964 A T h e s i s S u b m i t t e d i n P a r t i a l F u l f i l m e n t of the Requirements f o r the Degree of Master of A r t s i n the S c h o o l of Community and R e g i o n a l P l a n n i n g We a c c e p t t h i s t h e s i s as c o n f o r m i n g t o the r e q u i r e d s t a n d a r d The U n i v e r s i t y of B r i t i s h Columbia A p r i l , 1969 In p r e s e n t i n g t h i s t h e s i s i n p a r t i a l f u l f i l m e n t o f the r e q u i r e m e n t s f o r an advanced degree a t the 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 , I agree t h a t the L i b r a r y s h a l l make i t f r e e l y a v a i l a b l e f o r r e f e r e n c e and s t u d y . I f u r t h e r a g r e e t h a t p e r m i s s i o n f o r e x t e n s i v e c o p y i n g o f t h i s t h e s i s f o r s c h o l a r l y p u r poses may be g r a n t e d by the Head o f my Department o r by h i s r e p r e s e n -t a t i v e s . I t i s u n d e r s t o o d t h a t c o p y i n g o r ; p u b l i c a t i o n o f t h i s t h e s i s f o r f i n a n c i a l g a i n s h a l l not be a l l o w e d w i t h o u t my w r i t t e n p e r m i s s i o n . The U n i v e r s i t y o f B r i t i s h Columbia Vancouver 8, Canada Date 9td*? £, /%9 ABSTRACT The move toward e s t a b l i s h i n g r e g i o n a l government i n O n t a r i o r e f l e c t s the r e c o g n i t i o n by both l o c a l and p r o v i n c i a l governments of the i n a d e q u a c i e s of the p r e s e n t governmental s t r u c t u r e t o d e a l w i t h development i s s u e s of a r e g i o n a l n a t u r e . The r e q u i r e m e n t s of a r a p i d l y u r b a n i z i n g and growing p o p u l a t i o n are those whose d i s -c u s s i o n and p r o v i s i o n i s most e f f i c i e n t l y made by a form of government l a r g e r t h a n the e x i s t i n g m u n i c i p a l i t y and s m a l l e r than the p r o v i n c i a l government. The h y p o t h e s i s s t a t e s t h a t a l t e r i n g the p r o v i n c i a l d e p a r t m e n t a l o r g a n i z a t i o n i s a n e c e s s a r y p r e r e q u i s i t e t o s u c c e s s f u l e s t a b l i s h m e n t of the p l a n n i n g f u n c t i o n w i t h i n the r e g i o n a l government. I t i s based on the a r g u -ment t h a t w i t h the c r e a t i o n of r e g i o n a l government through out the p r o v i n c e , the e x i s t i n g o p e r a t i o n a l framework of the d e p a r t m e n t a l o r g a n i z a t i o n of the p r o v i n c i a l government i s not s u f f i c i e n t l y c o o r d i n a t e d t o d e a l w i t h p l a n n i n g i s s u e s f o r r e g i o n a l development. To defend the argument, documentation and a n a l y s i s i s made of the development of both l o c a l and p r o v i n c i a l government. T h i s g i v e s a back-i i i ground upon which t o e s t a b l i s h how and why t h e r e may be problems i n c o o r d i n a t i n g the i m p l e m e n t a t i o n of p l a n n i n g p o l i c y f o r r e g i o n a l development and t o make s u g g e s t i o n s of p o s s i b l e changes. i v TABLE OF CONTENTS Page ABSTRACT i i LIST OF ILLUSTRATIONS . v LIST OF APPENDICES v i ACKNOWLEDGEMENTS v i i Chapter I INTRODUCTION 1 I I GOALS FOR REGIONAL PLANNING AND GOVERNMENT.. 9 - C r i t e r i a f o r R e g i o n a l P l a n n i n g and Government 9 - S y n o p s i s of S o c i a l and Economic Changes.. 13 I I I LOCAL GOVERNMENT 21 - G e n e r a l F u n c t i o n 21 - O r i g i n and Development of L o c a l Government i n O n t a r i o 27 IV ORGANIZATION OF THE PROVINCIAL GOVERNMENT... 37 - O r g a n i z a t i o n P r i o r t o 1960 38 - O r g a n i z a t i o n A f t e r 1960 41 V DEVELOPMENTS IN REGIONAL PLANNING AND GOVERNMENT 48 - E f f o r t s of Non-governmental b o d i e s 49 - L o c a l Government E f f o r t s 51 - E f f o r t s of P r o v i n c i a l Government 55 VI APPRAISAL AND CONCLUSIONS 70 - Impact of Developments and Suggested Changes 70 BIBLIOGRAPHY .......... .... .......... 80 APPENDICES . . . . . . ." . .". . . . ........... 86 LIST OF ILLUSTRATIONS Page F i g u r e 1 — D e c e n n i a l P o p u l a t i o n I n c r e a s e , 1901-1966 13 T a b l e 1 -- P o p u l a t i o n Trends i n O n t a r i o , 1871-1966 14 F i g u r e 2 — R u r a l - U r b a n D i s t r i b u t i o n , 1941-1966 15 F i g u r e 3 — S t r u c t u r e of the C a b i n e t Committee 58 v i L I ST OF APPENDICES Appendix Page A Governmental Departments of the P r o v i n c e of O n t a r i o as of September, 1967 86 B O r g a n i z a t i o n C h a r t , Department of P l a n n i n g and Development, 1959 .... 88 C O r g a n i z a t i o n C h a r t , Department of M u n i c i p a l A f f a i r s , 1959 89 D O r g a n i z a t i o n C h a r t , Department of Economics and Development, O f f i c e of the C h i e f E c o n o m i s t , 1966 90 E O r g a n i z a t i o n C h a r t , Department of M u n i c i p a l A f f a i r s , 1967, w i t h p a r t i c u l a r d e t a i l on the Community P l a n n i n g B r a n c h . . 91 F C o u n t i e s , Southern O n t a r i o 92 G Townships, Southern O n t a r i o 93 H Economic R e g i o n s , Southern O n t a r i o . . . 94 I T o u r i s t R e g i o n s , S o u t h e r n O n t a r i o , 1967 95 J C o n s e r v a t i o n A u t h o r i t i e s , S o u t h e r n O n t a r i o , 1967 96 v i i ACKNOWLEDGEMENTS I would l i k e t o acknowledge the o p p o r t u n i t y which was g i v e n t o me by M. H. S i n c l a i r , Head, Research and S p e c i a l S t u d i e s S e c t i o n of the Community P l a n n i n g B r a n c h , Department of M u n i c i p a l A f f a i r s , O n t a r i o , t o i n v e s t i g a t e the s u b j e c t of r e g i o n a l p l a n n i n g and gov e r n -ment i n the summer of 1967. I would a l s o l i k e t o e x p r e s s my thanks t o Dr. P a u l Tennant, of the Department of P o l i t i c a l S c i e n c e , U n i v e r s i t y of B r i t i s h C o lumbia, and p a r t i c u l a r l y t o P r o f e s s o r Brahm Wiesman, my a d v i s o r , f o r t h e i r c r i t i c i s m and a s s i s t a n c e i n the p r e p a r a t i o n of t h i s t h e s i s . 1 CHAPTER I — INTRODUCTION When the A l m i g h t y happened t o bemuse h i s wisdom w i t h p l a y i n g s h o o t - t h e - w o r k s , he opened w i t h one hand the hot v a l v e of a b s o l u t e energy and w i t h the o t h e r the c o l d v a l v e of a b s o l u t e t i m e . B u c k m i n s t e r F u l l e r ' Change i n the n a t u r e of any i n s t i t u t i o n and the r a t e of t h a t change i s g e n e r a l l y dependent upon p a s t e v e n t s and developments w i t h i n the i n s t i t u t i o n . I t i s a l s o dependent upon e v e n t s e x t e r n a l but p e r t a i n i n g t o the i n s t i t u t i o n i t s e l f . In Canada the system of p o l i t i c a l i n s t i t u t i o n s w i t h i t s form of c o n s t i t u t i o n a l democracy and the t h r e e l e v e l s of government under which i t o p e r a t e s i s not unique i n t h i s dependence upon p a s t e v e n t s . At the same t i m e , major changes a t one l e v e l of government are o f t e n d e t e r m i n e d by the p r o v i s i o n s made f o r these changes by h i g h e r l e v e l s of government, and an assessment of the cause and e f f e c t -R. B u c k m i n s t e r F u l l e r , No More Secondhand God, Southern I l l i n o i s U n i v e r s i t y P r e s s , C a r b o n d a l e , 111., 1963, p. 37. 2 of these changes i s made d i f f i c u l t . A t the same t i m e , each l e v e l of government i s t a k i n g a more p a r t i c i p a t i v e r o l e i n the s o c i a l and economic development of the c o u n t r y . 2 Not o n l y i s the government e x p e c t e d t o s e t more m e a n i n g f u l g u i d e -l i n e s f o r community b e h a v i o u r and development, but a l s o i t must p r o v i d e more and more those s e r v i c e s which were once not as c r i t i c a l t o the p o p u l a t i o n . R a p i d changes i n the s o c i a l and economic c h a r a c t e r of the c o u n t r y have f o r c e d government t o be more f l e x i b l e i n e s t a b l i s h i n g p o l i c y t o meet these needs. P l a n n i n g , i n i t s b r o a d e s t s e n s e , as a c o o r d i n a t i v e f u n c t i o n whereby p o l i c y may be e f f e c t i v e l y implemented, has become more i m p o r t a n t i n the government's attempt t o c a r r y out i t s management of the s o c i a l and economic r e s o u r c e s f o r the p r e s e n t and f u t u r e p o p u l a t i o n , i n an e f f i c i e n t and d e m o c r a t i c manner. T h i s i n c l u d e s the c r e a t i o n of new s t r u c t u r e and p r o c e s s i n government,^ and the i d e n t i f i c a t i o n of d i s c r e p a n c i e s i n the e x i s t i n g i n s t i t u t i o n a l frameworks. I n so d o i n g , not o n l y must the a c t i v e p a r t s of the i n s t i t u t i o n '"Ontario, R e p o r t o f the Committee on T a x a t i o n , L a n c e l o t S m i t h , Chairman, T o r o n t o , 1967, V o l . I , p. 5. 2 0 n t a r i o , R e p o r t o f the Committee on T a x a t i o n , op. c i t . , p. 7. 3 J e an Gottman and R. A. H a r p e r , e d s . , M e t r o p o l i s on the Move, Henry F a g i n , W i l e y & Sons, New Y o r k , 1967, p. 173. r 3 b?a U n d e r s t o o d , but a l s o the r e a s o n s f o r the p a r t i c u l a r framework i n t o which t h e s e p a r t s are p l a c e d . There are j u s t i f i a b l e r e a s o n s f o r p r e s e n t governmental s t r u c t u r e and c a r e f u l a n a l y s i s i s n e c e s s a r y b e f o r e p o s s i b l e p r e s c r i p t i o n s can be f o r m u l a t e d . The f o l l o w i n g b r i e f resume of e v e n t s w i l l be expanded i n the body of the t h e s i s : i t i s p r e s e n t e d here t o f a m i l i a r i z e the r e a d e r i n an i n t r o d u c t o r y f a s h i o n . In the p r o v i n c e of O n t a r i o , the system of government has d e v e l o p e d over a p e r i o d of one hundred and f i f t y y e a r s i n a way t h a t has g e n e r a l l y been r e s p o n s i v e t o change, p a r t i c u l a r l y i n i t s e a r l y s t a g e s ; t h a t i s , up t o 1867. But r e p o r t s such as t h a t of the Commission on M u n i c i p a l I n s t i t u t i o n s i n 1888 s t a t i n g t h a t the m u n i c i p a l system i n O n t a r i o was "one of the b e s t i n the w o r l d " , ^ t e n d e d t o l e a d t o a s t a t e of s e l f - c o m p l a c e n c y . Meanwhile, as urban growth c o n t i n u e d , those connected w i t h government d i d not attempt t o f o r e s e e what e f f e c t s i t would have, p a r t i c u l a r l y on l o c a l government. As changes i n government became n e c e s s a r y because of t h i s r a p i d u r b a n i z a t i o n , semi-governmental a g e n c i e s , boards and commissions, such as the O n t a r i o R a i l w a y and M u n i c i p a l B o a r d , were e s t a b l i s h e d . These c e n t r a l i z e d ^R. K. R o s s , L o c a l Government i n O n t a r i o , Canadian Law H i s t o r y P u b l i s h i n g Co., T o r o n t o , 1962, p. 14. 4 power i n the p r o v i n c i a l government, a t a time when the e f f e c t s t h i s would have on the e f f i c i e n t and economic e x e r c i s e of government f u n c t i o n s was not f u l l y r e a l i s e d . Post-war developments have c o n t i n u e d i n t h i s frame; b l i n d , perhaps f o r p o l i t i c a l r e a s o n s , t o the p o t e n t i a l f o r s o l v i n g problems of - c o o r d i n a t i o n through changes i n l o c a l government. Energy has been o r i e n t e d m a i n l y i n one d i r e c -t i o n i n an attempt t o meet the a d m i n i s t r a t i v e needs of the v a r i o u s departments of the c e n t r a l government. Many of the c e n t r a l f u n c t i o n s b e i n g d e l e g a t e d t o boards i n d i c a t e d a l s o a d e c e n t r a l i z a t i o n of a u t h o r i t y on a l o c a l l e v e l , but a d e c e n t r a l i z a t i o n w i t h o u t f o c u s . T h i s f o c u s s h o u l d e x i s t : r e s p o n s i b i l i t y f o r a c t i o n must e v e n t u a l l y be .vested i n e l e c t e d r e p r e s e n t a t i v e s of the people."'" I t i s o n l y i n the p a s t t e n y e a r s t h a t the p o t e n t i a l f o r c h a n g i n g the s t r u c t u r e t h a t has e x i s t e d so l o n g has been seen. Suddenly^ the i d e a of r e g i o n a l government i s r a p i d l y becoming a r e a l i t y , as i s d e s c r i b e d i n the f o l l o w i n g c h a p t e r s . With t h i s i n t r o d u c t i o n , the encompassing problem i n t h i s t h e s i s i s viewed as b e i n g one of an i nadequate p r o v i n c i a l government o r g a n i z a t i o n f o r the e f f e c t i v e and e f f i c i e n t a d m i n i s t r a t i o n of i t s f u n c t i o n s r e l a t e d t o r e g i o n a l O n t a r i o , Report of the Committee on the O r g a n i z a t i o n of Government, W a l t e r Gordon, Chairman, T o r o n t o , 1959. 5 development. As the province of O n t a r i o moves towards the e s t a b l i s h m e n t of some form of r e g i o n a l government, c r i t i c a l examination of the e x i s t i n g s t r u c t u r e s , as w i l l be documented, has not i n v o l v e d equal treatment of both the l o c a l and p r o v i n -c i a l government. The c o o r d i n a t i o n and r e o r g a n i z a t i o n of l o c a l government has been s t u d i e d , but c a r e f u l and c l o s e examination of the r o l e of the c e n t r a l government departments with such major changes at the l o c a l government l e v e l has not been attempted. At the same time, the c e n t r a l i z a t i o n of p r o v i n c i a l a u t h o r i t y with the a i d of s p e c i a l - p u r p o s e boards has meant a d i s p e r s i o n and d i f f u s i o n of a u t h o r i t y on the l o c a l l e v e l , but without a f o c u s . The purpose of t h i s study i s not only to d i s c o v e r the reasons f o r t h i s s i t u a t i o n but a l s o to attempt t o foresee i n what way the dichotomy between s t r u c t u r e and f u n c t i o n c o u l d be r e s o l v e d by s u g g e s t i n g new s t r u c t u r e s . I t has been s a i d t h a t " s t r u c t u r e of government i s bound to be always out of date because governments respond to p r e s s u r e " , 1 but on the other hand, by another a n a l y s t of government, t h a t "urban focus and r e g i o n a l p l a n n i n g must have c o o r d i n a t e d p o l i c y •'•Murray V. Jones, "Urban Focus and Regional P l a n n i n g " , Canadian P u b l i c A d m i n i s t r a t i o n , J.I.P.A.C., IX (June, 1966), N o . 2, p. 179. 6 p l a n n i n g a t the p r o v i n c i a l l e v e l as i t s s t a r t i n g p o i n t " . C o o r d i n a t e d p o l i c y p l a n n i n g would seem d i f f i c u l t t o a t t a i n i f the a d m i n i s t r a t i v e s t r u c t u r e s are not c a r e f u l l y c o o r d i n a t e d . The h y p o t h e s i s i s t h a t a l t e r i n g the p r o v i n c i a l d e p a r t m e n t a l o r g a n i z a t i o n i s a n e c e s s a r y p r e r e q u i s i t e t o s u c c e s s f u l e s t a b l i s h m e n t of the p l a n n i n g f u n c t i o n w i t h i n r e g i o n a l government. The scope i n t h i s s t u d y i s upon the p l a n n i n g f u n c t i o n as a p r o c e s s whereby an attempt i s made t o ensure the r a t i o n a l development of a community o r group of communities i n terms of i t s ^ p h y s i c a l l a y o u t , the use of l a n d , and the use and development of i t s economic r e s o u r c e s . A l t h o u g h more emphasis has come t o be p l a c e d upon p l a n n i n g f o r the development of the s o c i a l or human r e s o u r c e s i n any community, the main f o c u s here i s upon p l a n n i n g f o r p h y s i c a l and economic d e v e l o p -ment. The f o c u s i s p l a c e d upon the l o c a l l e v e l of governments and the p l a n n i n g f u n c t i o n c a r r i e d on t h e r e , and a l s o upon the p r o v i n c i a l l e v e l o f government: e x a m i n i n g the n a t u r e of the p r o v i n c e ' s 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 s t r u c t u r e s , and the p a s t and p r e s e n t t r e n d s , p a r t i c u l a r l y r e l a t e d t o the r e g i o n a l p l a n n i n g f u n c t i o n . The l e g a l i t y or c o n s t i t u t i o n a l i t y of f e d e r a l - p r o v i n c i a l r e l a t i o n s i s o u t s i d e the scope of t h i s s t u d y , but p r o v i n c i a l d e l e g a t i o n of a u t h o r i t y t o l o c a l m u n i c i -p a l i t i e s w i l l be examined. '-Dr. S t e w a r t F y f e, " P l a n n i n g Problems and P r o g r e s s C o n f e r e n c e " , O n t a r i o D i v i s i o n of the Community P l a n n i n g A s s o c i a t i o n of Canada, T o r o n t o , 1966, p. 1. 7 The r e s e a r c h methodology e n t a i l s s t e p - b y - s t e p e x a m i n a t i o n and a n a l y s i s of both l o c a l and p r o v i n c i a l government s t r u c t u r e s , r e l a t e d t o a d m i n i s t r a t i o n and p l a n n i n g , f o r e n v i r o n m e n t a l c o n t r o l and economic d e v e l o p -ment. The procedure adopted i s t o examine the h i s t o r i c a l development of t h e s e s t r u c t u r e s i n the l i g h t of the c h a n g i n g f u n c t i o n s , and i n so d o i n g , t o r e v e a l p o s s i b l e i n c o n s i s -t e n c i e s between these f u n c t i o n s and the s t r u c t u r e s c r e a t e d t o c a r r y them out . An attempt has t h e r e f o r e been made t o o b t a i n a l l the most r e c e n t l y p u b l i s h e d and r e p o r t e d m a t e r i a l s , as w e l l as the background d a t a , h a v i n g t o do w i t h government f u n c t i o n and s t r u c t u r e on the p r o v i n c i a l , r e g i o n a l , or l o c a l l e v e l s . The o r g a n i z a t i o n of the t h e s i s complements t h i s r e s e a r c h methodology. The second c h a p t e r d i s c u s s e s the o b j e c t i v e s of r e g i o n a l government, and g i v e s a s y n o p s i s of the economic and s o c i a l changes which have o c c u r r e d i n O n t a r i o , n e c e s s i t a t i n g a new approach t o government. The t h i r d c h a p t e r i s a d e s c r i p t i o n of the development of l o c a l government i n the p r o v i n c e , up t o the p r e s e n t , as a background f o r the e x a m i n a t i o n and a n a l y s i s of the most r e c e n t developments. The f o u r t h d e a l s w i t h the p r e s e n t p r o v i n c i a l government s t r u c t u r e and f u n c t i o n a l o r g a n i z a -t i o n ; the f i f t h c h a p t e r g i v e s a resume of the developments over the p a s t f i f t e e n y e a r s towards r e g i o n a l p l a n n i n g and 8 government. The s i x t h , and c o n c l u d i n g c h a p t e r , t e s t s the h y p o t h e s i s through summary e x a m i n a t i o n of the data t h a t has been c o m p i l e d i n the p r e v i o u s c h a p t e r s . I t a l s o s u g g e s t s measures t o m i n i m i z e the problems- which are l i k e l y t o be e n c o u n t e r e d i n the e s t a b l i s h m e n t of r e g i o n a l government. 9 CHAPTER I I — GOALS POR REGIONAL PLANNING AND GOVERNMENT The approach t o p l a n n i n g f o r development i n an a r e a - w i d e , m e t r o p o l i t a n , or r e g i o n a l c o n t e x t i n the p r o v i n c e of O n t a r i o i s r e f l e c t e d i n the f o l l o w i n g g e n e r a l statement of the Prime M i n i s t e r : I t i s the r e s p o n s i b i l i t y of the O n t a r i o Government t o a s s e s s the p r e s e n t and f u t u r e r e q u i r e m e n t s of the p r o v i n c e r e l a t i n g t o s o c i a l , economic, and g o v e r n -mental development. The p r o v i n c i a l government a l s o has the r e s p o n s i b i l i t y t o c a r r y out and g i v e d i r e c t i o n t o r e g i o n a l l a n d use and economic development p l a n n i n g . I t has the d u t y t o ensure t h a t , when d e v e l o p -ment o c c u r s i n any p a r t of the p r o v i n c e , i t s h a l l t a k e p l a c e as a r e s u l t of good r e g i o n a l p l a n n i n g . Such p l a n n i n g must i n c l u d e c o n s i -d e r a t i o n of water s u p p l y , sewage d i s p o s a l , t r a n s p o r t a t i o n f a c i l i t i e s , h ighways, a g r i c u l t u r e , m i n i n g , t h e l o c a t i o n of i n d u s t r y , the s u p p l y of l a b o u r , and a l l the o t h e r f a c t o r s n e c e s s a r y t o the p r o v i s i o n of the b e s t p o s s i b l e s o c i a l and economic c l i m a t e f o r the people who l i v e and work w i t h i n the r e g i o n . 1 A c c e p t i n g the r o l e of the p r o v i n c i a l government, f o r the moment, the second s t e p i n the development of a t h e o r e t i c a l c o n s t r u c t i s t o e s t a b l i s h c r i t e r i a upon which r e g i o n a l p l a n n i n g •'•Ontario, The Prime M i n i s t e r , "Design f o r Development", A Statement on R e g i o n a l Development P o l i c y A p r i l , 1966,. p. 3. 10 a r e a s and e v e n t u a l l y r e g i o n a l government c o u l d be c r e a t e d . R e g i o n a l p l a n n i n g has been d e f i n e d as "a p r o c e s s , based on law and u n d e r t a k e n by a form of r e s p o n s i b l e g o v e r n -ment, d i r e c t e d toward 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 , i n a manner t h a t r e s u l t s , i n the a r e a s where p e o p l e s e t t l e and e s t a b l i s h r e g i o n a l communities, the b e s t e n v i r o n -ment and the soundest use of r e s o u r c e s t h a t our c i v i l i z a t i o n 1 i s c a p a b l e of e f f e c t i n g " T Immediate t o t h i s d e f i n i t i o n i s the view t h a t p l a n n i n g on a r e g i o n a l s c a l e must be "based on l a w " , and another a u t h o r i t y s t a t e s " r e g i o n a l p l a n n i n g through e x t r a - t e r r i t o r i a l c o n t r o l by one government over o t h e r g o v e r n -2 ments of e q u a l s t a t u s i s not a d e s i r a b l e l o n g - r u n s o l u t i o n " . To d e f i n e the r e g i o n and what the f u n c t i o n s of p l a n n i n g f o r r e g i o n a l development w i l l be, the e x i s t i n g p o l i t i c a l s t r u c t u r e s , both p r o v i n c i a l and l o c a l , must f i r s t be examined. With a d m i n i s t r a t i v e g u i d e l i n e s as t o how governmental f u n c t i o n s s h o u l d be a l l o c a t e d , t h e s e d e f i n i t i o n s can be made. The c r i t e r i a f o r the a r e a l and f u n c t i o n a l d i v i s i o n of government are based upon the c o n c e p t s of s e r v i c e and a c c e s s , " a c c e s s " meaning the a b i l i t y of i n d i v i d u a l c i t i z e n s t o p a r t i c i p a t e ^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 Development", Background P a p e r s , Resources f o r Tomorrow C o n f e r e n c e , V o l . I , 1961. ~* ^Murray J o n e s , op. c i t . , p. 180. 11 i n and t o i n f l u e n c e p u b l i c p o l i c y d e c i s i o n s ; ^ and " s e r v i c e " , the e f f i c i e n t and economic achievement of p u b l i c f u n c t i o n s , o be t h e y a d m i n i s t r a t i v e or o t h e r w i s e . The f o l l o w i n g c r i t e r i a are a p p l i e d t o the a l l o c a t i o n of government f u n c t i o n s : 1. The governmental j u r i s d i c t i o n r e s p o n s i b l e f o r p r o v i d i n g any s e r v i c e s h o u l d be l a r g e enough t o e n a b l e the b e n e f i t s from t h a t s e r v i c e t o be consumed p r i m a r i l y w i t h i n the j u r i s d i c t i o n . 2. The u n i t of government s h o u l d have a l a r g e enough area t o p e r m i t r e a l i z a t i o n of the economies of s c a l e . 3. The u n i t of government c a r r y i n g on a f u n c t i o n s h o u l d have a g e o g r a p h i c area of j u r i s d i c t i o n adequate f o r e f f e c t i v e p erformance. 4. The u n i t of government p e r f o r m i n g the f u n c t i o n s h o u l d have the l e g a l and a d m i n i -s t r a t i v e a b i l i t y t o p e r f o r m s e r v i c e s a s s i g n e d t o i t . 5. E v e r y u n i t of government s h o u l d be r e s p o n s i b l e f o r a s u f f i c i e n t number of f u n c t i o n s so t h a t i t p r o v i d e s a forum f o r r e s o l u t i o n of c o n f l i c t i n g i n t e r e s t s , w i t h s i g n i f i c a n t r e s p o n s i b i l i t y f o r b a l a n c i n g governmental needs and r e s o u r c e s . 6. The performance of f u n c t i o n s by a u n i t of gov-ernment s h o u l d remain c o n t r o l l a b l e by and a c c e s s i b l e t o i t s r e s i d e n t s . ''Ontario, R e p o r t of the Committee on " T a x a t i o n , V o l . I I , op. c i t . i p. 503. 2 I b i d . , p. 504. 12 7. F u n c t i o n s s h o u l d be a s s i g n e d t o t h a t l e v e l of government which maximizes the c o n d i t i o n s and o p p o r t u n i t i e s f o r a c t i v e c i t i z e n p a r t i c i p a t i o n and s t i l l p e r m i t s adequate performance.^ I t w i l l be seen t h a t i n O n t a r i o , the a l l o c a t i o n o f f u n c t i o n s on t h i s b a s i s was supposed t o have been made w i t h the e s t a b l i s h m e n t of l o c a l government i n the n i n e t e e n t h c e n t u r y . Today, th e s e l o c a l governmental s t r u c t u r e s s t i l l r e m a i n , a l t h o u g h amalgamation and a n n e x a t i o n has changed 2 x t h e i r s i z e . M u n i c i p a l c o r p o r a t i o n s , however, s i n c e Confedera-t i o n have not changed g r e a t l y i n the n a t u r e of the f u n c t i o n s t h a t t h e y p e r f o r m or i n the way t h e y are o r g a n i z e d t o p e r f o r m them. But t h e r e are broadened demands b e i n g p l a c e d upon p r o v i n c i a l and m u n i c i p a l government, and one of the r e s p o n s e s has been an i n c r e a s i n g i n t e r e s t i n the e s t a b l i s h m e n t of r e g i o n a l government and p l a n n i n g f o r r e g i o n a l development. I n d i s c u s s i n g the r o l e of the government i n 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 s t a t e s t h a t c o o r d i n a t i o n of the r e g i o n a l p l a n n i n g system a t the p r o v i n c i a l l e v e l of government i s ! j . C. B o l l e n s and H. J . Schmandt, The M e t r o p o l i s , p. 312, r e p r i n t e d i n I l l i n o i s C i t y Managers' A s s o c i a t i o n , "Governmental S t r u c t u r e i n the C h i c a g o M e t r o p o l i t a n A r e a : F a c t s and A l t e r n a t i v e s " , May, 1966, C h i c a g o , pp. 40-41. ^ O n t a r i o , R e p o r t of the Committee on T a x a t i o n , op. c i t . p. 498. 3 0 n t a r i o Department of Economics and Development, ( R e p o r t , Hans C a r o l , C h a i r m a n ) , "Geographic I d e n t i f i c a t i o n of R e g i o n a l Growth C e n t r e s and Development Regions i n Southern O n t a r i o " , T o r o n t o , 1966, p. 40. 13 e s s e n t i a l . " S t r i v i n g f o r b a l a n c e or e q u i l i b r i u m . . . w i l l be i m p o r t a n t i n many ways...most i m p o r t a n t i s the s t r i v i n g f o r a harmonious c o r r e l a t i o n of economic p r o c e s s e s and community development, and as a c o r o l l a r y , of the g o a l s of optimum r e s o u r c e use and optimum environment".'" S y n o p s i s of S o c i a l and Economic Changes The e s s e n t i a l r e a s o n b e h i n d the d i f f i c u l t i e s t h a t governments f a c e i n k e e p i n g pace w i t h the developments i s u s u a l l y the a c c e l e r a t i n g r a t e of s o c i a l and economic change. In the p r o v i n c e of O n t a r i o , not o n l y has the p o p u l a t i o n grown r a p i d l y and d i s t r i b u t e d i t s e l f i n v e r y c r i t i c a l ways, but the e x p e c t a t i o n s of t h i s p o p u l a t i o n are v e r y d i f f e r e n t today from what t h e y were one hundred, or even t w e n t y - f i v e y e a r s ago. Communication has become a major f a c t o r i n t h i s a c c e l e r a t i o n i n the r a t e of change. But what are tho s e changes which have t a k e n p l a c e i n O n t a r i o t o c r e a t e t h e s e problems? 1901 - 1911 15.8% 1911 - 1921 16.1 1921 - 1931 17.0 1931 - 1941 10.4 1941 - 1951 17.6 1951 - 1961 26.2 1961 - 1966 . . 11.7 F i g u r e 1 — D e c e n n i a l P o p u l a t i o n I n c r e a s e , 1901 - 1966.2 '"L. 0. G e r t l e r , R e s ources f o r Tomorrow C o n f e r e c e , op. c i t . 2 S e e T a b l e 1, p. 14. Census T o t a l D e c e n n i a l Year R u r a l - U r b a n D i s t r i b u t i o n R u r a l - U r b a n D i s t r i b u t i o n (000's) I n c r e a s e (%) R u r a l Urban R u r a l Urban Number % Number % Number Number % „ (000's) (000's) (000's) (000's) 1871 1,265 78 356 22 1,621 1881 1,351 70 576 30 1,927 18.9 1891 1,295 61 819 39 2,114 9.7 1901 1,247 57 936 43 2,183 3. 3 1911 1,199 47 1,328 53 2,527 15.8 1921 1,227 42 1,707 58 2,934 16. 1 1931 1,336 39 2,096 61 3,432 17.0 1941 1,449 38 2,339 62 3,788 10.4 1951 1,844 40 2,753 60 1,222., 27 3,376 73 4,598 17.6 1956 1,302'5 24 4,103 76 5,405 1961 2,615 42 3^621 58 1,413 22 4,824 78 6,236 26.1 1966 1,367 20 5,593 80 6,961 (11.7) T a b l e 1 — P o p u l a t i o n Trends i n O n t a r i o , 1871 - 1966. ^ r e 1951 d e f i n i t i o n of Urban. Urban d e f i n e d as a l l i n c o r p o r a t e d towns, c i t i e s , and v i l l a g e s r e g a r d l e s s of s i z e . 21961 d e f i n i t i o n of Urban. A l l c i t i e s , towns and v i l l a g e s of 1,000+, whether i n c o r p o r a t e d or n o t , as w e l l as u r b a n i z e d f r i n g e s of c i t i e s c l a s s i f i e d as m e t r o p o l i t a n a r e a s , or o t h e r major urban a r e a s , or of c e r t a i n s m a l l e r c i t i e s i f t h e cJLty, t o g e t h e r w i t h i t s u r b a n i z e d f r i n g e , was 10,000 or over. *~1956 d e f i n i t i o n of Urban: b a s i c a l l y same as 1961. 4 A d a p t e d from t h e Bureau of S t a t i s t i c s and Economics, "A Conspectus of the P r o v i n c e of Ontario'/, 1947, and Canada, D.B.S., Census of Canada, 1951, V o l . X, G e n e r a l Review, p. 34; 1961, I , pp. 1-7. 15 E x a m i n i n g the p o p u l a t i o n i n c r e a s e i n a b s o l u t e terms (see T able 1 ) , or i n p e r c e n t a g e terms (see F i g u r e 1 ) , the i n c r e a s e over the 1951-1961 p e r i o d was g r e a t e s t , b e i n g almost double the d e c e n n i a l i n c r e a s e s s i n c e the t u r n - o f -t h e — c e n t u r y . Meanwhile, the pace of growth has k e p t up < w i t h t h a t of Canada's as a whole. The u r b a n - r u r a l s h i f t s r e v e a l changes t h a t have o c c u r r e d , p a r t i c u l a r l y i n t h e urban f r i n g e a r e a s . In com-p a r i n g the f i g u r e s on the u r b a n - r u r a l breakdown, on the b a s i s of the two d i f f e r e n t d e f i n i t i o n s of urban and r u r a l , t h e s e changes are n o t i c e a b l e . A" . B" Urban R u r a l Urban R u r a l 1941 6 2 % 38% 1951 60 40 1961 58 42 78% 22% 1966 80 20 F i g u r e 2 — R u r a l - U r b a n D i s t r i b u t i o n , 1941-1966. W h i l e the r u r a l p o p u l a t i o n a c c o r d i n g t o the d e f i n i t i o n of 2 urban and r u r a l used p r i o r t o 1951 ("A") was i n c r e a s i n g , •"•See T a b l e 1, p.14. 2 C a n a d a , Dominion Bureau of S t a t i s t i c s , Census of Canada, 1951, V o l . X, G e n e r a l Review, p. 34, "Urban d e f i n e d as a l l i n c q r p o r a t e d c i t i e s , towns, and v i l l a g e s , r e g a r d l e s s o f s i z e . 16 the 1961 d e f i n i t i o n ("B") of urban and r u r a l i n d i c a t e s not only a decrease i n the r u r a l p o p u l a t i o n at l e a s t over the 1961-1966 p e r i o d , but a l s o a twenty per-cent d i f f e r e n c e i n the r u r a l - u r b a n d i s t r i b u t i o n i n 1961 ("B"). By the end of the n i n e t e e n t h c e n t u r y , the r u r a l p a r t of the province was becoming s t a b l e ; the towns and c i t i e s were s t a r t i n g t o grow r a p i d l y as the f i r s t r u r a l -urban d r i f t of p o t e n t i a l labour and the u r b a n - r u r a l exodus of r e c r e a t i o n - s e e k e r s commenced. The momentum of t h i s growth i n urban p o p u l a t i o n i s r e f l e c t e d i n the f a c t t h a t Toronto and i t s suburban m u n i c i p a l i t i e s even t h i r t y - f i v e years ago made up an area of l e s s than one hundred square m i l e s . In 1953, the j u r i s d i c t i o n of M e t r o p o l i t a n Toronto encompassed some two hundred square m i l e s , and that of the new p l a n n i n g a r e a , approximately seven hundred square m i l e s . A study undertaken by j o i n t p r o v i n c i a l and m u n i c i p a l a u t h o r i t i e s , the M e t r o p o l i t a n Toronto Area Regional T r a n s p o r t a t i o n Study, f i v e years ago worked on the b a s i s of an area of some fo u r thousand square m i l e s . I f t h i s were t o be extended t o i n c l u d e the journeys of summer c o t t a g e r s 1Canada, D.B.S., 1961, V o l . I , 1-7, p. 2, " A l l c i t i e s , towns, and v i l l a g e s of 1,000 and over, whether i n c o r -p o r a t e d or not, as w e l l as u r b a n i z e d f r i n g e s of c i t i e s c l a s s i f i e d as m e t r o p o l i t a n areas, or other major urban areas, or of c e r t a i n s m a l l e r c i t i e s , i f the c i t y , together with i t s u r b a n i z e d f r i n g e , was 10,000 or over." 17 t o the Muskokas and Kawartha Lakes a r e a , the r e g i o n upon which Toronto has d i r e c t i n f l u e n c e would i n v o l v e about f i f t e e n thousand square m i l e s . 1 With the u r b a n i z a t i o n , i n d u s t r i a l i z a t i o n has grown apace. The n i n e t e e n t h c e n t u r y towns developed manufacturing i n d u s t r i e s u s i n g l o c a l l y a v a i l a b l e r e s o u r c e s of m a t e r i a l s and l a b o u r , and s u p p l y i n g l o c a l needs: e.g., machinery manufacture, or f u r n i t u r e manufacture i n towns such as S t r a t f o r d , K i t c h e n e r , Peterborough, and London. The c i t y of Toronto, and t o a l e s s e r degree, Hamilton and Oshawa, developed major manufacturing i n d u s t r i e s , not n e c e s s a r i l y s u p p l y i n g l o c a l needs, r a t h e r p r o v i n c e - or nation-based needs. Toronto a l s o developed more than i t s share of t e r t i a r y i n d u s t r i a l a c t i v i t y : o r i g i n a l l y most obvious was the e s t a b l i s h m e n t of the Toronto Stock Exchange and i t s s u b s i d i a r y i n t e r e s t s . Along with t h i s and i t s government f u n c t i o n s , the c i t y became the n a t u r a l " c o r e " of the p r o v i n c e ' s urban growth and i n d u s t r i a l i z a t i o n . T h i s growth has i n c r e a s e d through time and space, so t h a t today over t w o - t h i r d s of the p r o v i n c e ' s manufacturing i n d u s t r y i n terms of p r o d u c t i v i t y i s l o c a t e d i n a "horseshoe" extending •'•Gerald Hodge, "Emerging Bounds of Urban Development", p r i n t e d by the Department of M u n i c i p a l A f f a i r s , Toronto, p. 5. 18 from N i a g a r a F a l l s around Lake O n t a r i o t o Oshawa, e a s t of T o r o n t o . I n c r e a s i n g l y , the s m a l l e r towns o u t s i d e t h i s c o n c e n t r a t i o n have become r e l a t i v e l y l e s s i m p o r t a n t f o r t h e i r m a n u f a c t u r i n g as improved t r a n s p o r t a t i o n f a c i l i t i e s have done away w i t h many of the o l d problems which n e c e s -s i t a t e d d e c e n t r a l i z a t i o n . " 1 " Those w i t h p o p u l a t i o n s of up t o t e n thousand have r e t u r n e d t o b e i n g p r i m a r i l y s e r v i c e c e n t r e s f o r the s u r r o u n d i n g r u r a l farm and non-farm p o p u l a t i o n . What o r i g i n a t e d as a form of t w o - t i e r government, w i t h the c o u n t y and the t o w n s h i p s w i t h i n i t f o r m i n g the b a s i s , has weakened as the towns have expanded o f t e n i n the p a s t a t the expense of the r u r a l c o u n t r y s i d e . Ever s i n c e the n o t i c e a b l e u r b a n i z a t i o n o f l a r g e p o r t i o n s of the p r o v i n c e , the t o w n s h i p s not o n l y have l o s t area and s o u r c e s of t a x revenue through a n n e x a t i o n , but a l s o have had l i f e made more d i f f i c u l t when urban s p r a w l i n t o them has n e c e s -s i t a t e d c o s t l y s e r v i c i n g which the t o w n s h i p s are not p r e p a r e d t o p r o v i d e . And the c o u n t y , a l t h o u g h i t was o r i g i n a l l y v i e wed as a b a s i c r e g i o n a l economic development u n i t , ' " was -'•Jacob S p e l t , Urban Development i n S o u t h - C e n t r a l O n t a r i o , VanGorcum P r e s s , A s s e n s , The N e t h e r l a n d s , 1955, p. 125. 2R. R. K r u e g e r , " R e g i o n a l Economic Development i n O n t a r i o " , a paper p r e s e n t e d t o the I n t e r n a t i o n a l Conference on R e g i o n a l Development and Economic Change, Department of Economics and Development, T o r o n t o , 1965, p. 28. 19 unable t o do a n y t h i n g about the s i t u a t i o n as a r e s u l t of the T e r r i t o r i a l D i v i s i o n A c t of 1910, by which the co u n t y ' s r e l a t i o n t o the towns and to w n s h i p s was s p e l l e d o u t . The whole p r o c e s s i s r e f l e c t e d i n the f a c t t h a t s e v e r a l of t h e growing towns became what i s c a l l e d " s e p a r a t e d towns", d e n y i n g t h e i r membership i n the county at a l l ; e.g., T r e n t o n i n the County of H a s t i n g s . Many of the to w n s h i p s have then become s m a l l , l o w - d e n s i t y r u r a l a r e a s a t t e m p t i n g t o p r o v i d e s e r v i c e s beyond t h e i r f i n a n c i a l c a p a c i t y . One of the f i r s t i n d i c a t i o n s of t h i s s i t u a t i o n o c c u r r e d d u r i n g the d e p r e s s i o n i n the ' t h i r t i e s when more than forty''" d e f a u l t i n g m u n i c i p a -l i t i e s were f o r c e d t o come under the d i r e c t a d m i n i s t r a t i o n of the Department of M u n i c i p a l A f f a i r s . D e s p i t e t h e s e economic d i f f e r e n c e s between the u r b a -n i z e d and r u r a l c o m m u n i t i e s , the d i f f e r e n c e s i n terms of the e x p e c t a t i o n s of the p o p u l a t i o n are not t h a t s i g n i f i c a n t . I n many a r e a s , f a r m i n g has become a b u s i n e s s e n t e r p r i s e i n the t r u e sense of the word. M a r g i n a l farms are b e i n g 2 r a p i d l y t a k e n over by l a r g e , e f f i c i e n t o p e r a t i o n s , and between 1961 and 1966 f o r example, the number of o c c u p i e d 3 farms i n the p r o v i n c e d e c r e a s e d by over n i n e per c e n t . '•Norman P e a r s o n , " F a i l u r e of P l a n n i n g i n O n t a r i o " , Ci? E. Res e a r c h R e p o r t No. 34, Queen's U n i v e r s i t y , K i n g s t o n , 1964, p. 3. 2D.B.S., Census of Canada, 1966, V o l . IV (4-2),3-1,4-1. 3D.B.S., op. c i t . , 2-1, 2-2. 20 Because of the s e changes, the r u r a l p o p u l a t i o n has become l e s s c u t o f f , and l i k e the f a r m s , the r e g i o n a l t r a d e and s e r v i c e a r e a s have become fewer and b i g g e r . These people e x p e c t c e r t a i n l e v e l s of s e r v i c e from t h e i r government t h a t are on a par w i t h those of urban communities, s e r v i c e s which few r u r a l m u n i c i p a l i t i e s are a b l e t o p r o v i d e . S c h o o l f a c i l i t i e s and r o a d improvements are two of the major s e r v i c e s r e q u i r e d , and t o b r i n g t h e s e t o h i g h e r s t a n d a r d s i s d i f f i c u l t f o r the s m a l l t o w n s h i p . The i s s u e s t h a t come t o t h e f o r e f r o n t when these developments are c o n s i d e r e d i n c l u d e the f o l l o w i n g : what i s t h e most d e s i r a b l e s p a t i a l d i s t r i b u t i o n of p o p u l a t i o n , j o b o p p o r t u n i t i e s , and l e i s u r e time a c t i v i t i e s ; s h o u l d t h e r e be an upper l i m i t on p o p u l a t i o n s i z e and what s h o u l d be the t e r r i t o r i a l e x t e n t of any u r b a n i z e d a r e a ; what s t a n d a r d s s h o u l d t h e r e be f o r p u b l i c u t i l i t i e s ; and what i s the f u t u r e of p a r k s and open space? Today, t h e s e q u e s t i o n s have a b e a r i n g on a r e a s w i d e r than one m u n i c i -p a l i t y , be i t a c i t y , a t o w n s h i p , o r , i n some c a s e s , a co u n t y . To e n a b l e i n d i v i d u a l s w i t h i n these m u n i c i p a l i t i e s t o have a t l e a s t some degree of u n d e r s t a n d i n g and say i n how the q u e s t i o n s are t o be approached, i t i s o b v i o u s t h a t the p r o v i n c i a l government i s not the most e f f e c t i v e , c a p a b l e , J a c o b S p e l t , op. c i t . , p. 130. 21 or r e s p o n s i b l e body t o undertake the a t t a c k of these i s s u e s on i t s own. These i s s u e s have been seen to j u s t i f y change i n the s t r u c t u r e and f u n c t i o n of government: how these changes are being brought about i s the s u b j e c t of the subsequent c h a p t e r s . 2 2 CHAPTER I I I — LOCAL GOVERNMENT L o c a l government has a g e n e r a l l y a c c e p t e d d u a l purpose; f i r s t l y , t o c a r r y out the d u t i e s imposed upon i t by the p r o v i n c e which has c r e a t e d them and t o which t h e y are u l t i m a t e l y a n s w e r a b l e ; and s e c o n d l y , w i t h i n the scope and the degree p e r m i t t e d by l a w , t o c a r r y out the w i s h e s of those b e i n g governed who i n h a b i t the a r e a . I t a l s o f u l f i l l s a t r a i n i n g f u n c t i o n f o r the p r o c e s s of d e m o c r a t i c government i n the p r o v i n c i a l and n a t i o n a l s p h e r e s . C l a i m s are made t h a t i t p r o v i d e s a r e s i s t a n c e t o o v e r c e n t r a l i z a t i o n , p a r t i c u l a r l y i n the case where p o l i c i e s e s t a b l i s h e d by a s u p e r i o r l e v e l of government must be j u s t i -f i e d b e f o r e the c o u r t s . "The p r o t e c t i o n of the m u n i c i p a l i t i e s " ( b e i n g c r e a t u r e s of the p r o v i n c e ) " l i e s not i n t h e i r l e g a l or c o n s t i t u t i o n a l p o s i t i o n , but r a t h e r i n the needs of the p e o p l e which must be met, and the d i f f i c u l t y , e s p e c i a l l y i n urban communities, of m e e t i n g these needs through the medium of any o t h e r government. "•*-^K. G. C r a w f o r d , Canadian M u n i c i p a l Government, U n i v e r s i t y of T o r o n t o P r e s s , T o r o n t o , 1954, p. 18. 23 The m u n i c i p a l s t r u c t u r e i n O n t a r i o today i n v o l v e s some one thousand" l o c a l a u t h o r i t i e s : townships, v i l l a g e s , towns, and c i t i e s ; and superimposed a second t i e r of l o c a l govern-ment, i n c l u d i n g f o r t y - t h r e e c o u n t i e s and elev e n improvement d i s t r i c t s . M u n i c i p a l c o r p o r a t i o n s are i n most cases i n c o r -p orated under the p r o v i s i o n s of the M u n i c i p a l A c t 1 , and t h e i r boundaries are s e t out under the T e r r i t o r i a l D i v i s i o n Act of 1910. The county government, made up of e l e c t e d r e p r e s e n t a t i v e s from each of the s m a l l e r l o c a l m u n i c i p a l i t i e s , performs f u n c -t i o n s which are r e g i o n a l i n nature, but, as i s i n d i c a t e d , are l i m i t e d i n scope. 2 The c o u n t i e s •, o r i g i n a t i n g as d i s t r i c t c o u n c i l s , were formed t o cr e a t e a t e r r i t o r i a l d i v i s i o n of the p r o v i n c e f o r mu n i c i p a l as w e l l as j u d i c i a l purposes. In 1841, the e s t a b -lishment of d i s t r i c t c o u n c i l s marked a break from the p r e v i o u s system of l o c a l government by the j u s t i c e s of the peace. Today, each county with i t s s e v e r a l towns, v i l l a g e s , and townships, performs the j u d i c i a l f u n c t i o n f o r each of these m u n i c i p a l i t i e s , and maintains c e r t a i n of the major roads, and t h e h e a l t h u n i t s which serve each community. Membership on the county c o u n c i l i s made up of the reeves and deputy reeves of the townships, "Ontario, The M u n i c i p a l A c t , R.S.O., 1960, S e c t i o n 10(3). "^See Appendix F. 24 v i l l a g e s , and towns i n the county. The county f u n c t i o n s are not c a r r i e d on w i t h i n c i t i e s or w i t h i n s e p a r a t e d towns w i t h the county b o u n d a r i e s , and they do not have r e p r e s e n t a -t i o n on the county c o u n c i l . R e p r e s e n t a t i o n i n the p r o v i n c i a l l e g i s l a t u r e i s not g e n e r a l l y based upon the s e c o u n t i e s ; i n some c a s e s , o n l y p a r t s of a county make up an e l e c t o r a l r i d i n g ; i n o t h e r s , p a r t s of s e v e r a l c o u n t i e s make up a r i d i n g , t o ensure r e p r e s e n t a t i o n on the b a s i s of e q u a l popu-l a t i o n . Townships are t e r r i t o r i a l units-*-, the a c q u i s i t i o n of c o r p o r a t e s t a t u s b e i n g governed by the M u n i c i p a l A c t 2 which p r o v i d e s t h a t , upon the a p p l i c a t i o n of not l e s s than s e v e n t y -f i v e i n h a b i t a n t s of a l o c a l i t y h a v i n g a p o p u l a t i o n of not l e s s than one thousand, the M u n i c i p a l B oard may i n c o r p o r a t e the i n h a b i t a n t s of the l o c a l i t y as a township or u n i o n of t o w n s h i p s . These have h i s t o r i c a l l y been c o n s i d e r e d as farm-based, r u r a l m u n i c i p a l i t i e s , e n s u r i n g a r e g u l a r i t y t o the p a t t e r n of r u r a l development. A v i l l a g e may g a i n c o r p o r a t e s t a t u s upon the a p p l i c a -t i o n of not l e s s than s e v e n t y - f i v e i n h a b i t a n t s of a l o c a l i t y 3 h a v i n g a p o p u l a t i o n of not l e s s than f i v e hundred. A town ^See Appendix G. 2The M u n i c i p a l A c t , op. c i t . , Sec. 1 0 ( 3 ) . 3 I b i d , Sec. 1 0 ( 4 ) . 25 may be c r e a t e d i n a s i m i l a r manner, p r o v i d i n g the l o c a l i t y has a p o p u l a t i o n of not l e s s than two thousand.'" The M u n i c i p a l B o a r d has the a u t h o r i t y under the M u n i c i p a l A c t t o c r e a t e a c i t y upon the a p p l i c a t i o n of a v i l l a g e or town h a v i n g a p o p u l a t i o n of not l e s s than f i f t e e n t h o u s a n d , or o f a t o w n s h i p h a v i n g a p o p u l a t i o n of not l e s s than t w e n t y - f i v e t h o u s a n d . 2 The a f f a i r s o f e v e r y m u n i c i p a l c o r p o r a t i o n are governed by an e l e c t e d c o u n c i l , v a r y i n g i n name and number of members by the' c l a s s of m u n i c i p a l i t y . Each of t h e s e m u n i c i p a l c o r p o r a -t i o n s i s r e s p o n s i b l e f o r assessment and t a x a t i o n of the i n h a b i t a n t s , and f o r the c a r r y i n g out of o t h e r d u t i e s a s s i g n e d t o them by the l e g i s l a t u r e of the p r o v i n c e . These d u t i e s i n c l u d e the p r o v i s i o n of m u n i c i p a l improvements such as s t r e e t s and r o a d s , water s u p p l y and sewage t r e a t m e n t where n e c e s s a r y , o f a s c h o o l system, and the c o n t r o l of l a n d u s e . A g e n c i e s h a v i n g l o c a l f u n c t i o n s o t h e r than t h e s e m u n i c i p a l c o r p o r a t i o n s are of two k i n d s : those h a v i n g p r o v i n c e - w i d e j u r i s d i c t i o n , i n some ca s e s c a l l e d autonomous b o a r d s , and t h o s e h a v i n g p u r e l y l o c a l j u r i s d i c t i o n , c o n t r o l l e d b o a r d s . The f i r s t c a t e g o r y i n c l u d e s the p r o v i n c i a l l y - o r g a n i z e d O n t a r i o M u n i c i p a l B o a r d , the H y d r o - E l e c t r i c Power Commission, '"The M u n i c i p a l A c t , op. c i t . , Sec. 1 0 ( 6 ) . 2 I b i d . , Sec. 11(4) and ( 5 ) . 26 t h e O n t a r i o W a t e r R e s o u r c e s C o m m i s s i o n , t h e H o s p i t a l S e r v i c e s C o m m i s s i o n , and t h e v a r i o u s p r o v i n c i a l d e p a r t m e n t s h a v i n g d i r e c t r e l a t i o n s h i p w i t h t h e m u n i c i p a l i t i e s ; e . g . , M u n i c i p a l A f f a i r s , P u b l i c W e l f a r e , H e a l t h , E d u c a t i o n , H i g h w a y s , E n e r g y and R e s o u r c e s , and E c o n o m i c s and D e v e l o p m e n t . I n t h e s e c o n d c a t e g o r y a r e f o u n d t h o s e l o c a l b o a r d s s u c h as l i b a r y b o a r d s , p a r k s b o a r d s , s c h o o l b o a r d s , p u b l i c u t i l i t i e s c o m m i s s i o n s , p l a n n i n g b o a r d s , c o u n t y s h e r i f f and p o l i c e c o m m i s s i o n s , j u v e n i l e c o u r t s and t h e i r c o m m i t t e e s , and c h i l d r e n ' s a i d s o c i e t i e s . W h i l e t h e s e l a t t e r a g e n c i e s a r e g e n e r a l l y e s t a b -l i s h e d b y t h e m u n i c i p a l c o u n c i l , b y b y - l a w , a nd h a v e c o u n c i l members s i t t i n g on t h e b o a r d s , u s u a l l y t h e r e i s a l s o n o n -e l e c t e d c i t i z e n m e m b e r s h i p . T h e s e b o a r d s o f t e n f u n c t i o n i n t h e same manner a s do s t a n d i n g c o m m i t t e e s o f c o u n c i l ; i . e . , m a k i n g r e c o m m e n d a t i o n s t o t h e c o u n c i l on a p a r t i c u l a r i s s u e . One a n a l y s t o f m u n i c i p a l g o v e r n m e n t h a s d e s c r i b e d t h e w h o l e f r a m e w o r k a s f o l l o w s : A m u l t i p l i c i t y o f m u n i c i p a l u n i t s , some o f w h i c h h a v e a s t a t u s a n d b o u n d a r i e s t h a t a r e ho l o n g e r m e a n i n g f u l . A b e w i l d e r i n g v a r i e t y o f l o c a l b o a r d s a n d c o m m i s s i o n s r e s u l t i n g i n e x t r e m e d i f f u s i o n o f r e s p o n s i b i l i t y and t h u s , f r o m t h e p o i n t o f v i e w o f t h e c i t i z e n , m a k i n g a c c o u n t a b i l i t y more d i f f i c u l t . An e d u c a t i o n a l s t r u c t u r e c o m p r i s i n g a v a r i e t y o f j u r i s d i c t i o n s , many o f w h i c h a r e no l o n g e r m e a n i n g f u l a s e f f e c t i v e s c h o o l a t t e n d a n c e a r e a s a nd i n c l u d i n g a s e p a r a t i o n o f r e s p o n s i -b i l i t y f o r e l e m e n t a r y and s e c o n d a r y e d u c a t i o n t h a t i s o u t o f p l a c e i n t h e t w e n t i e t h c e n t u r y . 2. 27 4. A number of conservation authorities with an important role to play but r a i s i n g d i f f i c u l t problems of p o l i t i c a l accounta-b i l i t y ; and 5. An increasing involvement in what have t r a d i t i o n a l l y been regarded as municipal r e s p o n s i b i l i t i e s by a large number of departments and agencies of the province thereby complicating the attainment of e f f e c t i v e administration through lack of coordination and dispersal of r e s p o n s i b i l i t y for action.1 The reasons behind these c h a r a c t e r i s t i c s of l o c a l government l i e in how l o c a l government has developed in response to changing needs and requirements of the popula-t i o n . The following describes some of these developments. Origin and Development of Local Government. The following summarizes in chronological order the major events in the development of l o c a l government and of i t s r e l a t i o n s h i p to senior government. 1791 Constitutional Act, enabling the f i r s t steps to be taken toward esta b l i s h i n g l o c a l government. 1839 Durham Report. 1840 Act of Union, creating an Upper and Lower Canada, with a l e g i s l a t u r e which passed the D i s t r i c t Councils Act. 1849 Baldwin Act, the f i r s t "Municipal Act". '•Ontario, Department of Municipal A f f a i r s , Peel-Ha It on Local Government Review, T. J. Plunkett, Commissioner, Toronto, September, 1966, p. 47. 28 1867 The B r i t i s h North America A c t , g i v i n g the p r o v i n c e complete r e s p o n s i b i l i t y f o r m u n i c i p a l government. 1882 Bureau of I n d u s t r i e s c r e a t e d . Board of H e a l t h c r e a t e d . 1897 P r o v i n c i a l M u n i c i p a l A u d i t o r e s t a b l i s h e d . 1906 O n t a r i o R a i l w a y and M u n i c i p a l Board c r e a t e d . ——- The appearance of the f i r s t i n t e r -m u n i c i p a l o r g a n i z a t i o n s . 1917 Bureau of M u n i c i p a l A f f a i r s c r e a t e d . 1932 O n t a r i o M u n i c i p a l Board e s t a b l i s h e d . 1935 Department of M u n i c i p a l A f f a i r s c r e a t e d . In 1764 the C o u r t s of Quarter Sess ions were e s t a b l i s h e d f o r j u d i c i a l purposes by the I m p e r i a l P a r l i a m e n t i n B r i t a i n , becoming p a r t l y 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 bodies f o r each of the d i s t r i c t c o u n c i l s c r e a t e d i n 1787 by the r e s i d e n t s o f each d i s t r i c t . Under the Quebec A c t of 1771 no p r o v i s i o n had been made f o r m u n i c i p a l government, and t o overcome t h i s d i f f i c u l t y , what had been known as Quebec was d i v i d e d i n t o Upper and Lower Canada by the C o n s t i t u t i o n a l A c t of 1791, p a v i n g the way f o r the es tab l i sh m en t of some form of l o c a l government. In 1793, the new Upper Canada l e g i s l a t u r e autho-r i z e d the h o l d i n g of town meet ings , p e r m i t t i n g the r a t e - p a y e r s t o e l e c t c e r t a i n of t h e i r l o c a l e x e c u t i v e o f f i c e r s . P r e v i o u s l y , they had a l l been appointed by the l e g i s l a t u r e . T h i s was the f i r s t r e a l r e c o g n i t i o n by the c e n t r a l government of the n e c e s s i t y of at l e a s t some measure of r e s p o n s i b l e l o c a l 29 a d m i n i s t r a t i o n . . I n t h e same y e a r , an A s s e s s m e n t A c t was b r o u g h t down; f o r m e r l y t h e m a g i s t r a t e s o f t h e C o u r t s o f Q u a r t e r S e s s i o n s h a d h a d c o m p l e t e power i n t h e l e v y i n g o f t a x e s , and s i n c e t h e s e m a g i s t r a t e s were a p p o i n t e d b y t h e c e n t r a l g o v e r n m e n t , t h e c l a i m s o f t h e i n h a b i t a n t s f o r c h a n g e g r e w s t r o n g e r . Many o f t h e p e o p l e l i v i n g i n "Upper Canada h a d come f r o m t h e S t a t e s a c r o s s t h e C a n a d i a n - A m e r i c a n b o r d e r w h ere t h e y were u s e d t o a much w i d e r d e g r e e o f l o c a l s e l f -g o v e r n m e n t . I n c o n f l i c t w i t h them were t h e "Home" g o v e r n m e n t p o w e r s , r e p r e s e n t i n g t h e B r i t i s h g o v e r n i n g b o d y , who a t t e m p t e d t o m a i n t a i n B r i t i s h N o r t h A m e r i c a a s i t h a d been e s t a b l i s h e d u n d e r t h e Quebec A c t o f 1 7 7 1 . T h i s c o n f l i c t e v e n t u a l l y c u l -m i n a t e d i n t h e r e b e l l i o n o f 1837 w i t h W i l l i a m L y o n M a c k e n z i e l e a d i n g l o c a l g o v e r n m e n t e n t h u s i a s t s a g a i n s t t h o s e who b y t h a t t i m e h a d become known as t h e F a m i l y C o m p a c t . B u t c h a n g e s were s l o w l y t a k i n g p l a c e . I n 1 8 1 6 , t h e f i r s t P u b l i c S c h o o l A c t g a v e t h e p e o p l e o f t h e e x i s t i n g t o w n s , v i l l a g e s , o r t o w n s h i p s t h e r i g h t t o meet t o g e t h e r , f r e e f r o m t h e a u t h o r i t y o f t h e m a g i s t r a t e s o f t h e Q u a r t e r S e s s i o n s , f o r t h e p u r p o s e o f a r r a n g i n g f o r common s c h o o l s a n d a p p o i n t i n g t r u s t e e s . < The t o w n s h i p h a d o r i g i n a t e d a s a m e t h o d o f l a y i n g o u t l a n d e n s u r i n g some s o r t o f o r d e r l y s e t t l e m e n t w o u l d t a k e p l a c e . Up u n t i l 1 8 4 9 , t h e t o w n s h i p s w e r e g e n e r a l l y s t i l l n o t s u f f i c i e n t l y p o p u l a t e d t o make a l o c a l g o v e r n m e n t p o s s i b l e , 30 and the towns and v i l l a g e s s t i l l had advanced l i t t l e beyond the town-meeting stage. Kingston, B r o c k v i l l e , B e l l e v i l l e , and Toronto were the major exceptions. Lord Durham, the governor-general of B r i t i s h North America i n 1839, reported, "the establishment of a good system of municipal i n s t i t u t i o n s throughout these provinces i s a matter of v i t a l importance. A general l e g i s l a t u r e , which manages the private business of the country, wields a power which no single body, however popular in i t s co n s t i t u t i o n , ought to have; the power of l o c a l assessment, and the application of funds a r i s i n g from i t , should be entrusted to l o c a l management."1 Further suggestions of his resulted in the 1840 Act of Union, creating an Upper and Lower Canada with one l e g i s l a t u r e which passed the D i s t r i c t Councils Act. The new D i s t r i c t Council, whose area of j u r i s d i c t i o n eventually formed the county unit of l o c a l government, was composed of a warden, appointed by the governor of the province, and elected c o u n c i l l o r s , taking over many of the functions of the Courts of Quarter Sessions. I t was also given the authority to l e g i s l a t e by-laws. This gave the r u r a l v i l l a g e s and townships a form of self-government somewhat approaching that of the larger towns and c i t i e s , although the townships were, and s t i l l are, looked upon as d i s t i n c t l y r u r a l , farm-oriented units of government. In R. K. Ross, op. c i t . , p. 11. 3 1 The 1849 B a l d w i n A c t , the f i r s t " m u n i c i p a l " a c t , s e t t l i n g the m a t t e r of l o c a l s e l f - g o v e r n m e n t , s e t out "one g e n e r a l l a w , f o r the e r e c t i o n of M u n i c i p a l C o r p o r a t i o n s and the e s t a b l i s h m e n t of R e g u l a t i o n s of P o l i c e i n and f o r the s e v e r a l C o u n t i e s , C i t i e s , Towns, Townships, and V i l l a g e s i n Upper Canada." 1 Whereas the c o u n t i e s or d i s t r i c t s e s t a b -l i s h e d i n 1791 had been p r i m a r i l y f o r m i l i t a r y and p o l i t i c a l p u r p o s e s , by 1849 t h e y were f u n c t i o n i n g m a i n l y as j u d i c i a l b o d i e s . I n 1867, a t the time of c o n f e d e r a t i o n , the p r o v i n c e was g i v e n the e x c l u s i v e power t o make laws a f f e c t i n g m u n i c i p a l i n s t i t u t i o n s and "on a l l m a t t e r s of a me r e l y l o c a l or p r i v a t e 9 n a t u r e . " The p a s s i n g of the B r i t i s h N orth America A c t by the B r i t i s h p a r l i a m e n t was an acceptance of the developments t h a t had o c c u r r e d i n Upper Canada, where the l e g i s l a t i o n r e l a t i n g t o m u n i c i p a l i n s t i t u t i o n s was e n a c t e d by. the p r o v i n c i a l l e g i s l a t u r e , and not by the Dominion P a r l i a m e n t . T h i s was based on the b e l i e f t h a t a p r o v i n c e " h a v i n g c r e a t e d the m u n i c i -p a l i t y i s a b l e t o c o n f e r upon t h a t body any or e v e r y power which the p r o v i n c e i t s e l f p o s s e s s e s under the C o n f e d e r a t i o n 3 A c t . " T h i s then d e f i n i t e l y d e l e g a t e d t o the p r o v i n c e the 1-In K. G. C r a w f o r d , op. c i t . , p. 32. 2 I b i d . , p. 56... 3 S m i t h v. London, (1909), 20, O.L.R. 133, i n K. G. C r a w f o r d , op. c i t . , p. 51. 32 r e s p o n s i b i l i t y of p r o v i d i n g f o r and s u p e r v i s i n g t o a degree the a c t i o n s of l o c a l m u n i c i p a l government. T h i s a g a i n i n d i c a t e s the e f f e c t s t h a t the U n i t e d Empire L o y a l i s t and o t h e r s e t t l e r s from the S t a t e s had on the s y s t e m j o f government. As the p r o v i n c e grew not o n l y i n numbers but a l s o i n w e a l t h , p r o v i n -c i a l a g e n c i e s , commissions, and boards which had as t h e i r f o c u s o f concern the e f f i c i e n t and e f f e c t i v e f u n c t i o n i n g of l o c a l s e r v i c e s were s e t u p . In 1882, the Bureau of I n d u s t r i e s was e s t a b l i s h e d , r e s p o n s i b l e f o r the c o l l e c t i o n of m u n i c i p a l s t a t i s t i c s . At the same t i m e , a Board of H e a l t h was e s t a b l i s h e d . In 1897, the o f f i c e of the P r o v i n c i a l M u n i c i p a l A u d i t o r was c r e a t e d t o s u p e r v i s e m u n i c i p a l and s c h o o l a c t s , but i t d i d not a p p l y t o c i t i e s of f i f t e e n thousand and o v e r . 1 In 1917, the Bureau of M u n i c i p a l A f f a i r s took over the j o b of c o l l e c t i n g and a n a l y z i n g m u n i c i p a l s t a t i s t i c s and the P r o v i n c i a l A u d i t o r became a member of the Bureau. As Ross s t a t e s 2 , " i t became apparent t h a t n e i t h e r e x p e d i e n c y nor e f f i c i e n c y was t o be o b t a i n e d through the s u p e r v i s i o n and c o n t r o l of l o c a l a u t h o r i t i e s by d i r e c t l e g i s l a t i o n on the p a r t of the p r o v i n c i a l government". T h i s a t t i t u d e became s t r o n g e r u n t i l the O n t a r i o R a i l w a y and ^R. K. Ross, op. c i t . , p. 17. 2 I b i d . , p. 14. 33 M u n i c i p a l Board was c r e a t e d i n 1906 t o d e a l w i t h c o m p l a i n t s from the p u b l i c r e g a r d i n g communication u t i l i t i e s and s e r v i c e s throughout the p r o v i n c e , such as r a i l w a y s , s t r e e t r a i l w a y s , and t e l e p h o n e s e r v i c e s . I t s scope was e v e n t u a l l y broadened t o d e a l w i t h c e r t a i n p a r t s of a c t s such as the Assessment A c t and the L o c a l Improvements A c t . I n 1932, the R a i l w a y and M u n i c i p a l Board was renamed the O n t a r i o M u n i c i p a l Board and i t s powers were g r e a t l y i n c r e a s e d . The 1902 P r o v i n c i a l Assessment Commission had r e p o r t e d , "Some governmental s u p e r v i s i o n of c o n t e m p l a t e d permanent improvements might w i t h p u b l i c advantage be p r o v i d e d so as t o r e q u i r e , as a c o n d i t i o n p r e c e d e n t t o the u n d e r t a k i n g of such e n t e r p r i s e s , the p r e v i o u s a p p r o v a l of a p r o p e r l y c o n s t i t u t e d governmental b o a r d . . . " 1 The B o a r d , i n 1932, became a three-member body w i t h the powers, r i g h t s and p r i v i -l e g e s of the Supreme C o u r t w i t h i n i t s j u r i s d i c t i o n i n r e l a t i o n t o m u n i c i p a l i t i e s and t h e i r b o ards: t o a d v i s e , t o d e v e l o p methods of f i n a n c i n g , t o approve or d i s a p p r o v e b y - l a w s , t o a u t h o r i z e c e r t a i n f i n a n c i n g , and t o v a l i d a t e d e b e n t u r e s , t o d i r e c t or waive a v o t e of the e l e c t o r s on any by-law, t o s u p e r v i s e the e x p e n d i t u r e of borrowed money, and t o i n q u i r e i n t o l o c a l a d m i n i s t r a t i o n . In R. K. Ross, op. c i t . , p. 16. 34 Three y e a r s l a t e r , i n 1935, when the Bureau of M u n i c i p a l A f f a i r s became a department, the O n t a r i o M u n i c i p a l B oard came under the Department of M u n i c i p a l A f f a i r s A c t and was g i v e n the power t o d e t e r m i n e whether or not a m u n i c i p a l i t y i n d e f a u l t of payment s h o u l d come under the d i r e c t a d m i n i s t r a t i o n o f t h e Department of M u n i c i p a l A f f a i r s . W h i l e those boards p r e v i o u s l y d e s c r i b e d were c r e a t e d as found n e c e s s a r y , t h e r e was a l s o the e s t a b l i s h m e n t of o t h e r autonomous p r o v i n c i a l boards and commissions t o a s s i s t i n the r e g u l a t i o n of l o c a l a f f a i r s . The r e l a t i o n s h i p between the m u n i c i p a l a u t h o r i t i e s and the p r o v i n c i a l a g e n c i e s may r e l a t e t o one or more of the f o l l o w i n g : the a p p r o v a l of an a s s i s t a n c e g r a n t f o r a s p e c i f i c purpose; the a p p r o v a l of an a c t i o n t o be c a r r i e d out by a m u n i c i p a l i t y under the r e l e v a n t l e g i s l a t i o n ; and the o b t a i n i n g of the consent of a m u n i c i p a l i t y f o r a programme t o be implemented by a department or an a g e n c y . 1 The O n t a r i o Water Resources Commission, f o r example, c r e a t e d i n 1956 by the O.W.R.C. A c t , s u p e r v i s e s and c o n t r o l s the e s t a b l i s h m e n t and c o n s t r u c t i o n of new sewage and water w o r k s , and i t may s u p e r v i s e the maintenance and o p e r a t i o n of such works when completed. A m u n i c i p a l i t y u n d e r t a k i n g a major water works p r o j e c t must f i r s t of a l l r e c e i v e the a p p r o v a l of t h e Commission which would arrange the f i n a n c i n g ; or i f R. K. Ross, op. c i t . , p. 92. 35 the commission f e l t t h a t a m u n i c i p a l i t y was u n a b l e t o a d e q u a t e l y complete a p r o j e c t t h e m s e l v e s , i t would make the n e c e s s a r y arrangements w i t h the m u n i c i p a l i t y t o u n d e r t a k e the work i t s e l f . The Commission p l a y s an i m p o r t a n t r o l e i n water and sewer s e r v i c i n g t hroughout the p r o v i n c e . O u t s i d e of the f o r m a l s t r u c t u r e s of l o c a l government, t h e r e have d e v e l o p e d i n t e r - m u n i c i p a l and i n t e r - c o u n t y a s s o c i a -t i o n s , such as the A s s o c i a t i o n of O n t a r i o C o u n t i e s , and the O n t a r i o M u n i c i p a l A s s o c i a t i o n , which have s t o o d f o r s t r o n g l o c a l p a r t i c i p a t i o n i n t h e i r own a f f a i r s , and these o r g a n i z a -t i o n s a r e now the prime b o d i e s through which the seeds f o r r e o r g a n i z a t i o n of l o c a l government are t a k i n g r o o t . These i n t e r - m u n i c i p a l o r g a n i z a t i o n s which have come "into e x i s t e n c e i n d i c a t e a n o ther r e a c t i o n t o the c e n t r a l i z a t i o n of governmental f u n c t i o n s a t the p r o v i n c i a l l e v e l . While t h e y o r i g i n a t e d as b o d i e s s e r v i n g as i n t e r e s t groups on m u n i c i p a l a f f a i r s , t h e y have become stau n c h s u p p o r t e r s of change."'- I t i s , however, what might be termed a c o n s e r v a t i v e view of change; t h e r e i s s t i l l s t r o n g s u p p o r t f o r the maintenance of the m u n i c i p a l s t r u c t u r e s as they now e x i s t , and, as s h a l l be s e e n , the c o u n t y , w i t h widened powers and a u t h o r i t y , i s f e l t t o be the i d e a l r e g i o n a l u n i t . ^ The p a r t the o r g a n i z a t i o n s have t a k e n w i l l be d i s c u s s e d i n g r e a t e r depth i n Chapter F o u r . •'•See "A B l u e p r i n t f o r L o c a l Government R e o r g a n i z a t i o n " , The M u n i c i p a l W o r l d , S t . Thomas, O n t a r i o , V o l . 77 (Nov. 1967), No. 11, p. 338. 36 From t h i s d e s c r i p t i o n of l o c a l government and i t s h i s t o r i c a l development, i t can c l e a r l y be seen how i m p o r t a n t the l e g i s l a t i v e framework d e s i g n e d by the p r o v i n c e i s i n the e x e r c i s e of the powers and d u t i e s of the l o c a l m u n i c i p a l i t i e s . I t i s i m p o r t a n t i n r e -s p e c t not o n l y t o those r e s p o n s i b i l i t i e s and powers g r a n t e d , but a l s o i n r e s p e c t t o the r e l a t i o n s h i p of the m u n i c i p a l i t y w i t h the p r o v i n c i a l a u t h o r i t i e s . The development of boards and commissions was perhaps seen at one time as the l e s s e r of two e v i l s i n the g r a d u a l t r e n d towards c e n t r a l i z a t i o n , but they have been found t o be l e s s than s a t i s f a c t o r y . 1 The d i f f i -c u l t i e s w i t h t h e s e boards are a good p a r t of the r e a s o n s f o r the developments i n r e g i o n a l p l a n n i n g and government. O n t a r i o , " S e l e c t Committee on the M u n i c i p a l A c t and R e l a t e d A c t s " , R e p o r t , S. B e c k e t t , Chairman, T o r o n t o , 1965. 37 CHAPTER IV — ORGANIZATION OF THE PROVINCIAL GOVERNMENT The d e p a r t m e n t a l i z a t i o n of government f u n c t i o n s i s a n a t u r a l phenomenon i n the n e c e s s a r y d i v i s i o n of l a b o u r , but a d e p a r t m e n t a l i z a t i o n which must be c o n s t a n t l y r e v i e w e d and r e o r g a n i z e d t o ensure i t s o p e r a t i o n a l e f f i c i e n c y as governmental f u n c t i o n s change and grow. 1 The r o l e of the p r o v i n c i a l government i n i t s r e l a t i o n t o the m u n i c i p a l i t i e s was s p e l l e d out i n the B r i t i s h N o r t h America A c t of 1867, and, as has been i n d i c a t e d i n the p r e v i o u s c h a p t e r , the t r e n d has been towards a c e n t r a l i z a t i o n of a d m i n i s t r a t i v e s u p e r v i s i o n over the l o c a l governments. T h i s c h a p t e r d i s c u s s e s the p r o v i n c i a l government d e p a r t -m e ntal o r g a n i z a t i o n as r e l a t e d t o the p l a n n i n g f u n c t i o n , both i n terms of economic and p h y s i c a l p l a n n i n g , and t o o t h e r r e l a t e d f u n c t i o n s d e a l i n g w i t h m u n i c i p a l a d m i n i s t r a t i o n and s e r v i c e s ; e.g., assessment and t a x a t i o n , e d u c a t i o n , water ''Ontario, R e p o r t of the Committee on the O r g a n i z a t i o n of Government, W a l t e r Gordon, Chairman, T o r o n t o , 1959, p. 2". 38 and sewers, and r e c r e a t i o n . The p r e s e n t departments of M u n i c i p a l A f f a i r s and of Economics and Development w i l l be g i v e n more c l o s e e x a m i n a t i o n than the departments d e a l i n g w i t h the l a t t e r f u n c t i o n s . 1 P r i o r t o 1960, the Department of M u n i c i p a l A f f a i r s , e s t a b l i s h e d i n 1935, a d m i n i s t e r e d the Assessment A c t and the M u n i c i p a l A c t , i n the f i r s t case d i r e c t i n g the p r o c e d u r e s used i n m u n i c i p a l a c c o u n t i n g , a u d i t i n g , and assessment 2 systems. The M u n i c i p a l A c t , i n p r e s c r i b i n g the framework of m u n i c i p a l i n s t i t u t i o n s i n the p r o v i n c e , d e f i n e s many of the powers and r e s p o n s i b i l i t i e s a s s i g n e d t o m u n i c i p a l c o r p o r a -t i o n s . On an o r d e r of t h e O n t a r i o M u n i c i p a l B o a r d , the Department of M u n i c i p a l A f f a i r s may be r e q u i r e d t o take over d i r e c t c o n t r o l of the a d m i n i s t r a t i o n of a l l t h e a f f a i r s of a d e f a u l t i n g m u n i c i p a l i t y , or of a new m u n i c i p a l i t y f o r a l i m i t e d p e r i o d of t i m e , a l t h o u g h few cases have o c c u r r e d i n the p a s t twenty y e a r s . The Department a l s o p e rforms a broad a d v i s o r y s e r v i c e t o a l l m u n i c i p a l i t i e s on q u e s t i o n s of p h y s i c a l development. A M u n i c i p a l A d v i s o r y Committee, e s t a b l i s h e d e a r l y i n the Department's h i s t o r y , and made up of one member of l e g i s l a t u r e and f i v e a p p o i n t e d m u n i c i p a l •^See Appendices A, B, C, D and E. 2 0 n t a r i o , R.S.O., 1960, The M u n i c i p a l A c t , R e v i s e d t o 1962. 39 o f f i c i a l s , has met once a month w i t h the M i n i s t e r of M u n i c i p a l A f f a i r s t o d i s c u s s problems i n m u n i c i p a l a d m i n i -s t r a t i o n . In 1944, a P l a n n i n g A c t was passed and a t the same time t h e Department of P l a n n i n g and Development was c r e a t e d by s t a t u t e , w i t h the r e s p o n s i b i l i t y of a d v i s i n g and, t o a d e g r e e , s u p e r v i s i n g p l a n n i n g a c t i v i t i e s a t the l o c a l l e v e l . T h i s f u n c t i o n was c a r r i e d out by the Community P l a n n i n g Branch w i t h i n t h e department. The o t h e r f u n c t i o n s of the department were i n the area of p r o m o t i n g the e x p a n s i o n of t r a d e and i n d u s t r y w i t h i n the p r o v i n c e and the development of improved s e r v i c e s and of l o c a l r e s o u r c e s by i n d i v i d u a l m u n i c i p a l i t i e s or groups of m u n i c i p a l i t i e s . The department r e c o g n i z e d a t l e a s t i n t h e o r y the need, f o r a b a l a n c e between p h y s i c a l p l a n n i n g and economic p l a n n i n g -and was s p e c i f i c a l l y g i v e n the r o l e of c o o r d i n a t i n g g o v e r n -ment p o l i c y on the p r o v i n c i a l and m u n i c i p a l l e v e l : The M i n i s t e r s h a l l c o l l a b o r a t e w i t h the m i n i s t e r s h a v i n g charge of the o t h e r d e p a r t -ments of t h e p u b l i c s e r v i c e of O n t a r i o , w i t h the m i n i s t e r s h a v i n g charge of the d e p a r t -ments of the p u b l i c s e r v i c e of Canada and of o t h e r p r o v i n c e s , w i t h m u n i c i p a l c o u n c i l s , w i t h See Chapter I I , p. 12; a l s o C h a r l e s Hoar, "Economic and P h y s i c a l P l a n n i n g : C o o r d i n a t i o n i n D e v e l o p i n g A r e a s " , J . A . I . P . , V o l • XXIV, No. 3, 1958, "the c o r e of an economic development p l a n i s u s u a l l y a budget f o r the p u b l i c i n v e s t m e n t s e c t o r , p l u s i n d i c a t i o n s of what i s e x p e c t e d from the p r i v a t e i n v e s t m e n t s e c t o r . . . The p l a n i m p l i e s a c e r t a i n l o c a t i o n o f i n d u s t r y and a c e r t a i n d i s t r i b u t i o n of p o p u l a t i o n and t h u s a c e r t a i n p a t t e r n of l a n d use." (emphasis m i n e ) . — 40 a g r i c u l t u r a l , i n d u s t r i a l , l a b o u r , m i n i n g t r a d e , and o t h e r a s s o c i a t i o n s and o r g a n i -z a t i o n s , and w i t h p u b l i c and p r i v a t e e n t e r p r i s e s w i t h a view t o f o r m u l a t i n g p l a n s t o c r e a t e , a s s i s t , d e v e l o p j and m a i n t a i n p r o d u c t i v e employment and t o d e v e l o p the human and m a t e r i a l r e s o u r c e s of O n t a r i o , and t o t h a t end s h a l l c o o r d i n a t e the work and f u n c t i o n s of the departments of the p u b l i c s e r v i c e of O n t a r i o . ! By 1959, t h e r e were seven r e g i o n a l development a s s o c i a -t i o n s i n the p r o v i n c e ; each one h a v i n g a p p o i n t e d r e p r e s e n t a -t i o n from p a r t i c i p a t i n g m u n i c i p a l i t i e s w i t h i n the region.'" The b o u n d a r i e s of t h e s e economic r e g i o n s were d e f i n e d by t h e f e d e r a l government i n 1953 f o r the purpose of s u r v e y s of r e g i o n a l economic development. The a s s o c i a t i o n s c o u l d r e c e i v e a t e n thousand d o l l a r annual matching g r a n t f o r the purpose of i n d u s t r i a l and t r a d e p r omotion from the government through the R e g i o n a l Development S e r v i c e s S e c t i o n of the Department of P l a n n i n g and Development. Concern i n c r e a s e d as the number of " s p e c i a l purpose" b o a r d s on a p r o v i n c e - w i d e s c a l e i n c r e a s e d i n number. Up u n t i l t h e end of World War I I t h e r e had been r e l a t i v e l y few, a p p r o x i m a t e l y f i v e , but by 1957 t h e r e were s i x t e e n . The r e s u l t was the 1959 Gordon Commission "Report on the O r g a n i z a t i o n of Government i n O n t a r i o " t o l o o k i n t o the " a d m i n i s t r a t i v e and e x e c u t i v e problems of the Government -•-Ontario, The Department of P l a n n i n g and Development A c t , 1950, S e c t i o n 3. 2See Appendix H. 41 of O n t a r i o i n a l l d i v i s i o n s of the P r o v i n c i a l S e r v i c e , and t o examine i n t o the r e l a t i o n s h i p s of boards and commissions t o the Government and the L e g i s l a t u r e . " 1 The f o u r g e n e r a l p r i n c i p l e s upon which recommendations were based were m i n i s -t e r i a l r e s p o n s i b i l i t y , f i n a n c i a l a c c o u n t a b i l i t y , g r o u p i n g 2 of r e l a t i o n f u n c t i o n s , and p r o v i s i o n f o r a p p e a l . While i t was acknowledged t h a t a d i v e r s i t y of government f u n c t i o n s sometimes n e c e s s i t a t e d " d i f f e r i n g a p p l i c a t i o n s i n d i f f e r i n g s i t u a t i o n s " , the recommendations were based upon th e s e f o u r g u i d e l i n e s . The Gordon Commission e f f e c t e d a major change i n the o r g a n i z a t i o n of the government p a r t i c u l a r l y r e l a t e d t o m u n i c i p a l a d m i n i s t r a t i o n . In 1960, the Community P l a n n i n g Branch which a d m i n i s t e r e d the P l a n n i n g A c t was t r a n s f e r r e d from the Department of P l a n n i n g and Development t o the Department of M u n i c i p a l A f f a i r s . Under the P l a n n i n g A c t , the a p p r o v a l of s u b d i v i s i o n p r o p o s a l s and r e z o n i n g a p p l i -c a t i o n s became the j o i n t f u n c t i o n of the Department of M u n i c i p a l A f f a i r s and the O n t a r i o M u n i c i p a l B o ard. The e s t a b l i s h m e n t of p l a n n i n g boards now a l s o came under the a d m i n i s t r a t i v e f u n c t i o n of the Department of M u n i c i p a l A f f a i r s . T h i s change was an attempt t o b r i n g p l a n n i n g f o r p h y s i c a l development more d i r e c t l y i n c o n t a c t , a t the p r o v i n c i a l l e v e l , w i t h i s s u e s of m u n i c i p a l a d m i n i s t r a t i o n as a whole. •'•Ontario, R eport of the Committee on the O r g a n i z a -t i o n of Government, op. c i t . , p. 2. 2 I b i d . , p. 15. 42 The P l a n n i n g and Development Department i n 1961 was combined w i t h the Department of Commerce f o r a b r i e f p e r i o d t o become the Department of Commerce and Development; i n 1962, the Department of Economics was u n i t e d w i t h Commerce and Development.to form the Department of Economics and Development. In the f i v e - y e a r p e r i o d s i n c e , the Department of Economics and Development has expanded r a p i d l y ; the f u n c t i o n s of economic p o l i c y - g u i d a n c e and r e s e a r c h and of r e g i o n a l economic promotion f o r development a p p a r e n t l y f i t t i n g t o g e t h e r w e l l . A new R e g i o n a l Development Branch composed of a R e g i o n a l Research S e c t i o n , t o u n d e r t a k e s t u d i e s of the ten economic r e g i o n s as a b a s i s f o r f u r t h e r r e s e a r c h 1 , and t o a c t i n l i a i s o n w i t h o t h e r government departments and non-governmental r e s e a r c h b o d i e s , has come i n t o e x i s t e n c e . 2 In 1966, the R e g i o n a l Development A s s o c i a -t i o n s were re-named R e g i o n a l Development C o u n c i l s . 3 The Gordon R e p o r t a l s o recommended t h a t the Department of M u n i c i p a l A f f a i r s s h o u l d be r e s p o n s i b l e f o r a l l m u n i c i p a l q u e s t i o n s and t h a t i t s h o u l d be s t r e n g t h e n e d and r e o r g a n i z e d . 1 A s o f June'; 1966, s u r v e y s of n i n e of t h e ten economic r e g i o n s of the p r o v i n c e had been p u b l i s h e d , each s u r v e y s e t t i n g out the major components of economic a c t i v i t y , e xami-n i n g the e x t e n t and d i r e c t i o n o f growth and i n d i c a t i n g the r e g i o n ' s c o n t r i b u t i o n t o the p r o v i n c i a l economy. 2 C r e a t e d e a r l y i n 1966. See Appendix D. ^ O n t a r i o , The R e g i o n a l Development C o u n c i l s A c t , 1966. 43 With the t r a n s f e r of t h e Community P l a n n i n g Branch and p a r t of the work o f the M u n i c i p a l B oard a l s o b e i n g g i v e n t o t h e Department of M u n i c i p a l A f f a i r s i n I 9 6 0 , at l e a s t two of t h e p r i n c i p l e s upon which the Repo r t was based were implemented: t h a t of m i n i s t e r i a l r e s p o n s i b i l i t y and g r o u p i n g of r e l a t i o n f u n c t i o n s . A f t e r 1960, o f f i c i a l p l a n s and s u b d i v i s i o n p l a n s were r e f e r r e d t o the O n t a r i o M u n i c i p a l Board s o l e l y on the s t r e n g t h of an app e a l from t h e m u n i c i p a l i t y , the s u b d i v i d e r , or the M i n i s t e r of M u n i c i p a l A f f a i r s . R e s t r i c t e d area by-laws passed under the r e l e v a n t s e c t i o n of the P l a n n i n g A c t s t i l l r e q u i r e the 1 a p p r o v a l of the M u n i c i p a l B oard , t h e a p p r o v a l b e i n g f o r a l i m i t e d p e r i o d of t i m e . W h i l e recommendations had been made t h a t the a p p r o v a l of m u n i c i p a l f i n a n c i n g s h o u l d a l s o be t r a n s f e r r e d from the M u n i c i p a l B o a r d t o the Department of M u n i c i p a l A f f a i r s , w i t h a p p e a l s b e i n g p o s s i b l e , a S e l e c t Committee of the House i n 1960 r e p o r t e d t o the l e g i s l a t u r e t h a t such i s s u e s were of a q u a s i - j u d i c i a l n a t u r e and t h a t a p p r o v a l s h o u l d remain s u b j e c t t o the d e c i s i o n of the M u n i c i p a l B o a r d . T h i s f u n c t i o n has remained w i t h them. N e v e r t h e l e s s , the major '•Ontario, The P l a n n i n g A c t , R.S.O., i 9 6 0 , amended t o 1966, Chapter 296, S e c t i o n 30. 9 ^Report of the Committee on the O r g a n i z a t i o n of Govern-ment i n O n t a r i o , op. c i t . , p. 44. ^ O n t a r i o , S e l e c t Committee t o Examine and t o Study the A d m i n i s t r a t i v e and E x e c u t i v e Problems of the Government of O n t a r i o , I n t e r i m R e p o r t , November, 1960, p. 5. 44 p r o p o s a l s made by the Gordon Commission"have been implemented. The Department of M u n i c i p a l A f f a i r s h a s , as a r e s u l t , d e v e l o p e d more d i r e c t t i e s w i t h the l o c a l m u n i c i p a l i t i e s . The Department of Energy and Resources has c o n t r o l over the a d m i n i s t r a t i o n of the C o n s e r v a t i o n A u t h o r i t i e s t h r o u g h o u t the p r o v i n c e . O r g a n i z e d on a watershed b a s i s , t h ey d e v e l o p much of the n a t u r a l p u b l i c open space f o r r e c r e a t i o n a l and c o n s e r v a t i o n a l p u r p o s e s . W h i l e t h e i r r e s p o n s i b i l i t y f o r water p o l l u t i o n c o n t r o l was t a k e n over by the O n t a r i o Water Resources Commission i n 1965, t h e y s t i l l o p e r a t e v e r y c l o s e l y w i t h t h i s commission i n the s u p e r v i s i o n of water and sewage works. The Department of Tourism and I n f o r m a t i o n and i t s T o u r i s t ' I n d u s t r y Development Branch a c t s as an i n t e r m e d i a r y between l o c a l t o u r i s t i n t e r e s t s and the government by a d m i n i -s t e r i n g the T o u r i s t E s t a b l i s h m e n t A c t which s e t s out the g u i d e l i n e s upon which each t o u r i s t e s t a b l i s h m e n t c a r r i e s on i t s t r a d e . R e g i o n a l T o u r i s t C o u n c i l s have been formed t h r o u g h o u t the p r o v i n c e , and t h e s e a s s o c i a t i o n s , a l t h o u g h f o r m i n g a l t o g e t h e r d i f f e r e n t r e g i o n s than those of the R e g i o n a l Development C o u n c i l s , have attempted v o l u n t a r i l y t o merge w i t h them. 1 The government has passed l e g i s l a t i o n f o r a f i v e - t h o u s a n d d o l l a r m a t c h i n g g r a n t t o the t o u r i s t c o u n c i l s . -"•The Prime M i n i s t e r , "Design f o r Development", op. c i t . , p. 11. 45 As a p o t e n t i a l s o u r c e of i m p o r t a n t d a t a on r u r a l a g r i c u l t u r a l development, the A g r i c u l t u r a l R e h a b i l i t a t i o n and Development A d m i n i s t r a t i o n (A.R.D.A.) program i n O n t a r i o a l s o o p e r a t e s r e g i o n a l l y . I t s a c t i v i t i e s are j o i n t l y f i n a n c e d by the f e d e r a l a n d ^ p r o v i n c i a l g o v e r n -ments, the s e c r e t a r i a t b e i n g a t t a c h e d t o the Department of A g r i c u l t u r e . County-based committees s e t up t o d e a l w i t h a g r i c u l t u r a l development problems r e c e i v e the a s s i s -t a n c e o f r u r a l development o f f i c e r s of the Department of A g r i c u l t u r e . The Department of E d u c a t i o n has been g r a d u a l l y w o r k i n g towards the e s t a b l i s h m e n t of boards of e d u c a t i o n on a county b a s i s . L e g i s l a t i o n i n 1964 e s t a b l i s h e d the town-s h i p as the s m a l l e s t u n i t of e l e m e n t a r y s c h o o l a d m i n i s t r a t i o n , and the number of s c h o o l boards dropped by 1967 t o j u s t over s i x t e e n hundred from f o r t y - t w o hundred i n 1955. 1 The d e t a i l s of the new system, t o be brought i n as of J a n u a r y , 1969, are d e s c r i b e d i n Chapter F i v e . As i n d i v i d u a l m u n i c i p a l i t i e s have changed and as t h e y have become more and more i n t e r - d e p e n d e n t , the r o l e of the p r o v i n c e i n e v e r y department has expanded i n an attempt t o c o o r d i n a t e t h e s e i n t e r d e p e n d e n c i e s i n an e f f i c i e n t manner. But c l a i m s by l o c a l m u n i c i p a l i t i e s of o v e r - c e n t r a l i z a t i o n o f r e s p o n s i b i l i t y and s u p e r f l u i t y of a d m i n i s t r a t i v e b o u n d a r i e s '-The T o r o n t o Globe and M a i l , November 15, 1967, p. 1. 46 f o r t h e s e d e p a r t m e n t a l f i e l d o f f i c e s have l e d t o examina-t i o n - ^ i n t o new approaches by the p r o v i n c i a l government. I t i s r e c o g n i z e d t h a t c e r t a i n f u n c t i o n s must of n e c e s s i t y have d i f f e r e n t a d m i n i s t r a t i v e r e g i o n s ; f o r example, the c o n s e r v a t i o n a u t h o r i t i e s b o u n d a r i e s which are based upon watersheds c o u l d not e f f e c t i v e l y be used as b o u n d a r i e s f o r r e g i o n a l development a r e a s . However, c e r t a i n f u n c t i o n s c a r r i e d on by v a r i o u s departments are v e r y s i m i l a r i n V t h e i r o b j e c t i v e s , w h i l e the r e g i o n s i n which t h e s e f u n c t i o n s are c a r r i e d on v a r y g r e a t l y . The a d m i n i s t r a t i o n of the P l a n n i n g and M u n i c i p a l A c t s by the Department of M u n i c i p a l - A f f a i r s , f o r example, i s based upon an e n t i r e l y d i f f e r e n t system of o r g a n i z a t i o n than are the r e g i o n a l development a r e a s through which the Department of Economics and Development o p e r a t e s . The developments t h a t have o c c u r r e d i n t h i s r e s p e c t are d e a l t w i t h i n the f o l l o w i n g c h a p t e r . The major e v e n t s i n the development of the Department of M u n i c i p a l A f f a i r s and the Department of Economics and Development are summarized below. 1935 Department of M u n i c i p a l A f f a i r s c r e a t e d t o a d m i n i s t e r the M u n i c i p a l A c t and the Assessment A c t . 1944 Department of P l a n n i n g and Development e s t a b l i s h e d t o a d m i n i s t e r the newly l e g i s l a t e d P l a n n i n g A c t . •'-See pp. 55-65. 47 1953 E s t a b l i s h m e n t of t e n economic r e g i o n s . 1959 Gordon Commission "Report on the O r g a n i z a t i o n of Government i n O n t a r i o " . 1960 T r a n s f e r of the Community P l a n n i n g Branch t o the Department of M u n i c i p a l A f f a i r s from P l a n n i n g and Development. 1962 E s t a b l i s h m e n t of the Department of Economics and Development. 48 CHAPTER V — DEVELOPMENTS IN REGIONAL PLANNING AND GOVERNMENT The i n c r e a s e i n p o p u l a t i o n and the e f f e c t i t has had both on u r b a n i z e d and r u r a l communities have made changes w i t h i n the a d m i n i s t r a t i v e system of the p r o v i n c i a l g o v e r n -ment n e c e s s a r y . But a t the same t i m e , a l o n g w i t h t h e s e changes i n f u n c t i o n , " R e g i o n a l p l a n n i n g has remained e i t h e r an i n e f f e c t i v e mechanism or i s not o p e r a t i v e at a l l . That such a paradox s h o u l d e x i s t , - i n t e r - d e p e n d e n t urban r e g i o n s h a v i n g i n e f f e c t i v e or no r e g i o n a l p l a n n i n g machinery, -means t h a t we have been a t t e m p t i n g t o s e c u r e d e s i r a b l e ends by means t h a t are f a u l t y and i n c a p a b l e of l e a d i n g t o any u n i f i e d objective.""'" Whether or not t h i s s t atement can be a c c e p t e d can o n l y be de t e r m i n e d by e x a m i n i n g the s t e p s t h a t have been ta k e n towards r e g i o n a l p l a n n i n g , and more r e c e n t l y , r e g i o n a l government. "'"Murray V. J o n e s , '^UTrban Focus and R e g i o n a l P l a n n i n g " , op. c i t . , p. 177. 49 The pace a t which concern w i t h r e g i o n a l p l a n n i n g and government has grown has been i n c r e a s i n g over the p a s t f i f t e e n y e a r s . The e s t a b l i s h m e n t of M e t r o p o l i t a n T o r o n t o i n 1953 was p o s s i b l y the s p a r k t h a t was needed t o s e t o f f r e g i o n a l government e n t h u s i a s t s . Many of the m u n i c i p a l i t i e s see the remedies f o r t h e i r own d i f f i c u l t i e s , be t h e y f i n a n -c i a l or a d m i n i s t r a t i v e , i n an approach somewhat l i k e t h a t o f T o r o n t o . What was c r e a t e d as the r e s u l t of a l e n g t h y p e r i o d of p r o v i n c i a l i n v e s t i g a t i o n and of d i s c u s s i o n s and a p p e a l s on the p a r t of the m u n i c i p a l i t i e s 1 , was a f e d e r a t i o n of the t h i r t e e n m u n i c i p a l i t i e s . W h i l e they r e t a i n e d t h e i r p o l i t i c a l i d e n t i t i e s , a second t i e r of l o c a l government took over c e r t a i n powers and r e s p o n s i -b i l i t i e s , p a r t i c u l a r l y those of a m e t r o p o l i t a n or urban-wide s c a l e d e a l i n g w i t h t r a n s p o r t a t i o n and r o a d s , water and sewage, h e a l t h and w e l f a r e , p l a n n i n g , assessment and t a x a t i o n , j u s t i c e , and p a r k s and r e c r e a t i o n . In 1956, the p o l i c i n g f u n c t i o n and l i c e n s i n g s e r v i c e were o r g a n i z e d on a m e t r o p o l i t a n s c a l e as w e l l . Subsequent s t u d i e s have 2 been commissioned but these w i l l not be d i s c u s s e d h e r e . '-For example, " D e c i s i o n s and Recommendations of the O n t a r i o M u n i c i p a l B o a r d " , the 'Cummings R e p o r t ' , J a n u a r y , 1953. 2 For example, "Report of the R o y a l Commission on M e t r o p o l i t a n T o r o n t o " , C a r l G o l d e n b e r g , Commissioner, Department of M u n i c i p a l A f f a i r s , T o r o n t o , 1965. 50 M e t r o p o l i t a n T o r o n t o as an i m p o r t a n t s t e p i n the e v o l u t i o n o f r e g i o n a l p l a n n i n g and government, however,, p r e s e n t s l i m i t a t i o n s f o r e x a m i n a t i o n h e r e , i n t h a t i t i s a r a t h e r u n i q u e case i n r e l a t i o n t o the r e q u i r e m e n t s i n the r e s t of the p r o v i n c e . T h i s s t u d y i s more concerned w i t h an e x a m i n a t i o n of the e n a b l i n g s t r u c t u r e s by which r e g i o n a l government and p l a n n i n g can be e f f e c t i v e t h r o u g h o u t the p r o v i n c e . A paper p u b l i s h e d by the Community P l a n n i n g Review i n 1954 w r i t t e n by J . Wreford Watson 1 was i n d i c a t i v e of the s u p p o r t f o r p l a n n i n g on a r e g i o n a l b a s i s i n Canada. He made a p l e a f o r r e g i o n a l c o n s e r v a t i o n and p l a n n i n g of r e s o u r c e s as a n e c e s s a r y p r e r e q u i s i t e t o s u c c e s s f u l n a t i o n a l p l a n n i n g . By 1960, more p r o f e s s i o n a l s were f o c u s s i n g t h e i r a t t e n t i o n on t h i s i s s u e ; f o r example, Hans B l u m e n f e l d i n 2 " R e g i o n a l P l a n n i n g " i n PLAN :*;. L e o n a r d G e r t l e r i n " R e g i o n a l ' P l a n n i n g and Development" i n the R esources f o r Tomorrow back-ground p a p e r s ; and E r i c B e e c r o f t i n h i s "Agenda f o r R e g i o n a l Government", p r e s e n t e d t o the 1961 Annual Conven-t i o n of the O n t a r i o M u n i c i p a l A s s o c i a t i o n i n Toronto.2 These men, G e r t l e r and B l u m e n f e l d i n p a r t i c u l a r , s t r e s s e d e m p h a t i c a l l y the need f o r a t o t a l p l a n n i n g approach t o the •'•Reprinted i n " R e g i o n a l Development", Background papers f o r the c o n f e r e n c e on R e g i o n a l Development and Economic Change, Department of Economics and Development, T o r o n t o , Feb. 1965. ^ R e p r i n t e d i n " R e g i o n a l Development", op. c i t . 51 regional problem: incorporating economic and physical planning into one meaningful u n i t . Beecroft gave very positive reasons for the estab-lishment of regional government: not only would i t f a c i l i t a t e administrative a c t i v i t y of the p r o v i n c i a l government but i t would also "decentralize and democratize f e d e r a l - p r o v i n c i a l operations", bringing "many major prob-lems of national development within the purview of l o c a l 1 c i t i z e n s and their leaders, ..." With these as t y p i c a l concerns in the background, i t i s of i n t e r e s t to examine what has occurred both on l o c a l and p r o v i n c i a l l e v e l s towards e s t a b l i s h i n g regional planning and government. Organizations such as the Ontario Municipal Associa-tion which was formed at the turn of the century have performed l i a i s o n roles in an attempt to present l o c a l views to the p r o v i n c i a l government in a more e f f e c t i v e manner. The Ontario Municipal Association, with repre-sentation from most municipal governments, was active in 1906 when the Ontario Railway and Municipal Board was changed. At that time, they f e l t that there was a need 2 for such a body as the Ontario Municipal Board. 1 I b i d . 2R. K. Ross, op. c i t . , p. 16 I 52 S i n c e the m i d - ' f i f t i e s , o t h e r s i m i l a r o r g a n i z a t i o n s have spr u n g up. I n 1953, a m e e t i n g of suburban t o w n s h i p s around T o r o n t o s e r i o u s l y a f f e c t e d by proposed a n n e x a t i o n was h e l d , and t h i s l e d t o the f o r m a t i o n of the O n t a r i o A s s o c i a t i o n of R u r a l - U r b a n M u n i c i p a l i t i e s , a branch of the O n t a r i o M u n i c i p a l A s s o c i a t i o n . In 1960, the A s s o c i a t i o n of O n t a r i o C o u n t i e s was formed as an a f t e r m a t h of a c t i o n by B r a n t f o r d Township t o form a r e g i o n a l government on a c o u n t y b a s i s . T h e i r c o n s t i t u t i o n s e t s out t h e i r p r i m a r y aim, " t o s t u d y the p r e s e n t j u r i s d i c t i o n and p o s s i b l e e x p a n s i o n of the c o u n t y system, and b r i n g i n recommendations f o r i t s b e t t e r u t i l i -z a t i o n and m o d e r n i z a t i o n i n o r d e r t o meet p r e s e n t and 1 f u t u r e c o n d i t i o n s " . I n 1961, a b r i e f s u b m i t t e d by them r e q u e s t e d a r o y a l commission on l o c a l government, but a t the t i m e no a c t i o n was t a k e n by the p r o v i n c e . T h i s o r g a n i -z a t i o n s t i l l h o l d s t o the b e l i e f t h a t a r e v i s e d county form of government c o u l d be s u c c e s s f u l ; i n " B l u e p r i n t f o r L o c a l Government R e o r g a n i z a t i o n " , p r e s e n t e d t o the p r o v i n c e i n October of 1967 , i t a d vocated t h a t c i t i e s and s e p a r a t e d towns r e j o i n c o u n t i e s t o form r e g i o n a l governments. In the urban a r e a s of the p r o v i n c e these would p r o v i d e c o o r d i n a t i o n of the f u n c t i o n s such as •'•Association of O n t a r i o C o u n t i e s , "A B l u e p r i n t f o r L o c a l Government R e o r g a n i z a t i o n " , i n M u n i c i p a l W orld, S t . Thomas, O n t a r i o , November, 1967, p. 338. 2 I b i d . 53 assessment and t a x a t i o n , e d u c a t i o n , p a r k s and r e c r e a t i o n , water and s e w e r s , p l a n n i n g , and t r a n s p o r t a t i o n . D e s p i t e t h i s p r o p o s a l from the a s s o c i a t i o n , the recommendations have been c r i t i c i z e d from w i t h i n the r a n k s of the a s s o c i a t i o n . A former p r e s i d e n t was r e p o r t e d t o s t a t e t h a t " t h i s a s s o c i a t i o n and o t h e r a s s o c i a t i o n s have come t o the end of t h e i r rope u n l e s s we get some i n t e s t i n a l f o r t i t u d e from Queens' P a r k " . He went on t o say t h a t i t was a type of " b a n d - a i d " s o l u t i o n 1 , i n t h a t t h i s k i n d of r e o r g a n i z a t i o n would not s o l v e the b a s i c c o o r d i n a t i v e problems of the p r o v i n c i a l government nor any of the r e a l t a x a t i o n problems of the m u n i c i p a l i t i e s . To s t a r t w i t h , no boundary changes were recommended, and more p e r m i s s i v e l e g i s l a t i o n as a means of e n a b l i n g the l o c a l governments t o attempt t o s o l v e t h e i r own d i f f i c u l t i e s was a l s o f e l t n e c e s s a r y . Another a u c t i o n on the p a r t of the l o c a l m u n i c i p a -l i t i e s was the 1963 e s t a b l i s h m e n t of the N i a g a r a P e n i n s u l a M u n i c i p a l Committee on Urban and R e g i o n a l R e s e a r c h , i n v o l v i n g L i n c o l n and W e l l a n d c o u n t i e s and the c i t i e s of S t . C a t h e r i n e s , N i a g a r a P a l l s , and W e l l a n d . With a g r a n t from the Canadian C o u n c i l on Urban and R e g i o n a l R e s e a r c h , t h e y r e t a i n e d H. B. Mayo t o do a r e v i e w of l o c a l government T o r o n t o Globe and M a i l , October 26, 1967, p. 4. 54 f o r the a r e a . T h e i r s was the f i r s t of a s e r i e s of r e v i e w s which have been commissioned s i n c e by the Department of M u n i c i p a l A f f a i r s , l o o k i n g i n t o the s t r u c t u r e and o r g a n i z a t i o n of l o c a l government. These w i l l be d i s c u s s e d a t a l a t e r p o i n t i n t h i s c h a p t e r . The O n t a r i o Branch of the F e d e r a t i o n of Mayors''" and M u n i c i p a l i t i e s i s a f o u r t h o r g a n i z a t i o n which i n November, 1965, a c t e d w i t h t h o s e b o d i e s a l r e a d y mentioned, as w e l l as w i t h Chambers of Commerce thr o u g h o u t the p r o v i n c e , J a y c e e s , and the A s s o c i a t i o n of C i t y E n g i n e e r s , t o form an O n t a r i o Conference on L o c a l Government. With the a s s i s t a n c e of the Community P l a n n i n g Branch and the R e g i o n a l Development S e r v i c e of the Economics and D e v e l o p -ment Department, a c t i n g as i n f o r m a t i o n o f f i c e r s , the c o n f e r e n c e has h e l p e d t o pave the way t o b e t t e r u n d e r -s t a n d i n g of the problems of l o c a l government and of ; s t e p s b e i n g made toward r e g i o n a l government. One f i n a l example of m u n i c i p a l i t i e s a t t e m p t i n g t o examine and perhaps s o l v e t h e i r own problems on a r e g i o n a l s c a l e was the e s t a b l i s h m e n t i n November, 1965, of a R e g i o n a l E x e c u t i v e Committee c o n s i s t i n g of the warden •'•Virginia Thorne, " O n t a r i o Conference on L o c a l Government", i n M u n i c i p a l W o r l d , S t . Thomas, A p r i l 1967, p. 120. 2 w i t h a 1966 p o p u l a t i o n of a p p r o x i m a t e l y 108,000, and an area of 1,600 square m i l e s . 55 of P r i n c e Edward and H a s t i n g s C o u n t i e s , the mayors of B e l l e v i l l e and T r e n t o n and t h e i r s e n i o r e x e c u t i v e o f f i c e r s . The Committee has met r e g u l a r l y but i n f o r m a l l y s i n c e June of 1965 and i n December, 1966, was a b l e t o s e t up an amalgamated h e a l t h u n i t . O ther s u b j e c t s d i s -c u s s e d by the committee have i n c l u d e d the e s t a b l i s h m e n t of a r e g i o n a l c o l l e g e i n the a r e a , j o i n t p l a n n i n g a c t i v i t i e s , and a Water R e s o u r c e s Commission s t u d y of the a r e a . 1 A t the same t i m e , a t the p r o v i n c i a l l e v e l , a t t e m p t s were b e i n g made t o d i s c o v e r i n what d i r e c t i o n r e g i o n a l development and p l a n n i n g s h o u l d p r o c e e d . The R e g i o n a l Development Branch of Economics and Development sponsored a c o n f e r e n c e i n F e b r u a r y , 1965, e n t i t l e d " R e g i o n a l Development and Economic Change". K r u e g e r ' s paper on r e g i o n a l economic development i n O n t a r i o d e a l t w i t h the problem of c o o r d i n a t i n g economic and p h y s i c a l p l a n n i n g , and he s t a t e d : "The i m p o r t a n c e of c o o r d i n a t i n g p o l i c i e s and programmes of d i f f e r e n t departments and b ranches of the p r o v i n c i a l government can h a r d l y be over-emphasized. U n l e s s t h e r e i s c l o s e c o o r d i n a t i o n a t the p r o v i n c i a l g o v e r n -ment l e v e l , some of the p r o p o s a l s p r e v i o u s l y made w i l l be i m p o s s i b l e t o e x e c u t e , and the end r e s u l t of a l l the a t t e m p t s a t r e f o r m a t the l o c a l l e v e l w i l l meet w i t h v e r y l i m i t e d ^Jean P o r t u g a l , " R e g i o n a l C o o p e r a t i o n i s P o s s i b l e " , i n M u n i c i p a l W o r l d , S t . Thomas, F e b r u a r y 1967, p. 37. 56 s u c c e s s . I t i s f o r t h i s r e a s o n t h a t I recommend, r e g a r d l e s s of what o t h e r a c t i o n i s t a k e n , t h a t the government e s t a b l i s h a C a b i n e t Committee on R e g i o n a l Development, and f u r t h e r , t h a t t h i s C a b i n e t Committee b e g i n w o r k i n g as soon as p o s s i b l e on a P r o v i n c i a l Development P l a n t o a c t as a g u i d e f o r d e p a r t m e n t a l programs."! The Re p o r t of the S e l e c t Committee on the M u n i c i p a l A c t and R e l a t e d A c t s 2 , c a l l e d The B e c k e t t Commission of 1965, recommended " r e g i o n a l " u n i t s of l o c a l government; a d o p t i n g t h e e x i s t i n g c o u n t i e s " i n whole -or i n p a r t " , as a p r a c t i c a l s t a r t i n g p o i n t . A l l c i t i e s and s e p a r a t e d towns, w i t h the e x c e p t i o n of M e t r o p o l i t a n T o r o n t o , would be a p a r t of t h e government of t h e i r p a r t i c u l a r r e g i o n , and membership on the r e g i o n a l c o u n c i l would be by d i r e c t e l e c t i o n on a ward system. I t was recommended t h a t the P l a n n i n g A c t be amended t o make p l a n n i n g a r e g i o n a l r e s p o n -s i b i l i t y , w i t h the accompanying d i s s o l u t i o n of the p l a n n i n g b o a r d s . P l a n n i n g i n t h i s c o n t e x t was c o n s i d e r e d as an a d a p t i v e p r o c e s s w i t h r e g a r d t o p h y s i c a l development o n l y . The r e p o r t a l s o recommmended d e t a i l e d s t u d y of the p r o v i n c e t o d etermine s u i t a b l e b o u n d a r i e s f o r l a r g e r u n i t s of govern-ment . !R. K r u e g e r , " R e g i o n a l Economic Development i n O n t a r i o " , I n t e r n a t i o n a l C onference on R e g i o n a l Development and Economic Change, Department of Economics and Development, T o r o n t o , 1965, p. 4 5 . Q ^ O n t a r i o , S e l e c t Committee on the M u n i c i p a l A c t and R e l a t e d A c t s , R e p o r t , T o r o n t o , March 1965, p. 185. T h i s Committee was a p p o i n t e d i n March of 1961. 57 In A p r i l , 1966, as a r e s u l t of the s e r e p o r t s and commiss i o n s , the P r e m i e r p r e s e n t e d a statement t o the l e g i s l a t u r e e n t i t l e d " Design f o r Development". A t the same t i m e , the M i n i s t e r of the Department of Economics and Development brought i n two p i e c e s of l e g i s l a t i o n : an A c t t o p r o v i d e f o r R e g i o n a l Development C o u n c i l s w i t h w i d e r r e s p o n s i b i l i t i e s and i n c r e a s e d f i n a n c i a l b a c k i n g than the p r e v i o u s R e g i o n a l Development A s s o c i a t i o n s , and an A c t t o c r e a t e an O n t a r i o Development C o r p o r a t i o n . A t the t i m e , i t was s t r e s s e d t h a t t h e s e moves were o n l y concerned w i t h r e g i o n a l development and not r e g i o n a l government; t h a t the e x i s t i n g power and a u t h o r i t y of the m u n i c i p a l and county a u t h o r i t i e s would be l e f t unchanged. P r i m a r y among the p r i o r i t i e s s e t up was the e s t a b -l i s h m e n t of a C a b i n e t Committee, such as the one Krueger had s u g g e s t e d , w i t h the f u n c t i o n of " d i r e c t i n g and c o o r d i n a t i n g the 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 of r e g i o n a l p l a n s r e l a t i n g t o l a n d use and economic d e v e l o p -ment, h o u s i n g , highways, t r a n s p o r t a t i o n , a g r i c u l t u r e , i n d u s t r y , e d u c a t i o n , and o t h e r m a t t e r s p e r t a i n i n g t o growth and development w i t h i n the p r o v i n c e . " 1 The C a b i n e t '-Ontario, "Design f o r Development", op. c i t . , p. 15. 58 Committee c o n s i s t i n g of m i n i s t e r s of s i x p r o v i n c i a l d epartments, would be concerned w i t h the " i n t e r - r e l a t e d p r o c e s s of p o l i c y , p r i o r i t i e s , p l a n n i n g and c o o r d i n a t i o n s of government a c t i v i t y " . 1 The Depa r t m e n t a l A d v i s o r y Sub-committee was t o "examine and submit r e g i o n a l development CABINET,COMMITTEE Prime M i n i s t e r , Chairman; M i n i s t e r s of Land's and F o r e s t s , Economics and Development, M u n i c i p a l A f f a i r s , Highways, A g r i c u l t u r e . DEPARTMENTAL ADVISORY SUBCOMMITTEE M i n i s t e r of Economics and Development, Chairman Above Departments r e p r e s e n t e d , as w e l l as Energy and R e s o u r c e s , To u r i s m and I n f o r m a t i o n . REGIONAL DEVELOPMENT ADVISORY BOARDS (Economics and Development) C i v i l S e r v i c e S t a f f , w o r k i n g from f i e l d o f f i c e s . R e g i o n a l Boards of C i v i l S e r v a n t s ( F i e l d O f f i c e s ) R e g i o n a l Development C o u n c i l s ( L o c a l ) F i g u r e 3 — 1 I b i d , P. S t r u c t u r e of the C a b i n e t Committee. 2 2 . 59 p l a n s and programmes t o the C a b i n e t Committee".''' I t was a l s o t o d i r e c t and c o o r d i n a t e the a c t i v i t i e s of the R e g i o n a l A d v i s o r y B o a r d , T h i s B o a r d i s the same body t h a t p r e s e n t l y works out of the R e g i o n a l Development Branch of the Department of Economics and Development w i t h the r e g i o n a l c o u n c i l s . The n i n t h and l a s t of the o b j e c t i v e s e s t a b l i s h e d by the P r e m i e r was " t o work toward the g r a d u a l e s t a b l i s h -ment of common a d m i n i s t r a t i v e and p l a n n i n g r e g i o n s among the o p e r a t i n g departments and a g e n c i e s of the p r o v i n c i a l 2 government". I t was, however, not made c l e a r i n t h i s " D e s i g n " what changes would be n e c e s s a r y w i t h i n the p r o v i n c i a l governmental s t r u c t u r e t o b r i n g t h i s about, a p a r t from the newly-formed c a b i n e t committee. The C a b i n e t Committee met f o r the f i r s t time i n December of 1966, and r e p o r t s of i t s meetings are not made p u b l i c . F i g u r e 3 shows the o r g a n i z a t i o n s t r u c t u r e of the committee and i t s r e l a t i o n t o the r e g i o n a l c o u n c i l s . In k e e p i n g w i t h the o t h e r p r i o r i t i e s s e t out i n the " D e s i g n f o r Development", the Department of Economics and Development commenced a s e r i e s of r e g i o n a l economic s u r v e y s w i t h the a i d of s e v e r a l u n i v e r s i t i e s i n the p r o v i n c e ; one by York U n i v e r s i t y ' s Hans C a r o l , "Geographic 1 I b i d , p. 15. z I b i d . 60 I d e n t i f i c a t i o n of R e g i o n a l Growth C e n t r e s and Development R e g i o n s i n Southern O n t a r i o " , 1 and one on E a s t e r n O n t a r i o by G e r a l d Hodge of the U n i v e r s i t y of T o r o n t o . 2 The outcome of these p r i o r i t y s t a t e m e n t s and p r o -j e c t s has been a renewed e f f o r t on the p a r t of the Department of Economics and Development and i t s R e g i o n a l Development Branch t o "implement a f i r m development p l a n i n 1969 t h a t w i l l b r i n g a l l the r e g i o n s of the p r o v i n c e t o 3 t h e i r economic p o t e n t i a l " . The r e g i o n a l development o f f i c i a l s under the d i r e c t o r , R. S. Thoman, do acknowledge the c o n f l i c t s which the Smith R e p o r t on T a x a t i o n made c l e a r . ^ These i n v o l v e d r e l a t i n g the f u t u r e r e g i o n a l government p o l i c i e s w i t h the r e g i o n a l economic p o l i c y t h a t has been e s t a b l i s h e d f o r the t e n economic r e g i o n s of the p r o v i n c e . The r e g i o n a l development o f f i c i a l s have advocated on a number of c o u n t s c o - t e r m i n o u s b o u n d a r i e s f o r economic and government r e g i o n s , but the o f f i c i a l s have a l s o s u g g e s t e d t h a t the acceptance of the government r e g i o n s s u g g e s t e d by "'"Hans C a r o l , "Geographic I d e n t i f i c a t i o n of R e g i o n a l Growth C e n t r e s and Development Regions i n Southern O n t a r i o " , a R e p o r t t o the R e g i o n a l Development B r a n c h , T o r o n t o , November, 1966. 2 G e r a l d Hodge, " P r o s p e c t s f o r Growth of Urban P l a c e s i n Non-Metro R e g i o n s " , R e p o r t , T o r o n t o , December 1964. 3 T o r o n t o Globe and M a i l , J a n u a r y 11, 1968, p. 12. 4 I b i d . the Smith r e p o r t may w e l l be i m p o s s i b l e . The Smith Committee, i n the p r o c e s s of making i t s r e p o r t , d i d not c o n s u l t w i t h the r e g i o n a l development o f f i c i a l s of the Department of Economics and Development, whose work i n the r e g i o n a l development s e c t i o n i s f a r advanced i n t o i t s new programmes. 3 F u r t h e r c o n s i d e r a t i o n i s b e i n g g i v e n by t h i s d e p a r t -ment i n t o the p o s s i b l e c o o r d i n a t i o n of p r o v i n c i a l g o v e r n -ment a c t i v i t i e s by e s t a b l i s h i n g r e g i o n a l c e n t r e s f o r a d m i n i s t r a t i v e purposes r a t h e r than r e g i o n s w i t h s t r i c t b o u n d a r i e s Developments have been t a k i n g p l a c e w i t h i n the p l a n n i n g boards of i n d i v i d u a l or two or more m u n i c i p a -l i t i e s . In 1966, f o r example, the v a r i o u s m u n i c i p a l p l a n n i n g boards i n W a t e r l o o County formed a j o i n t c o u n t y p l a n n i n g b o a r d . W a t e r l o o a t the time was a c o u n t y of over two hundred and t h i r t e e n thousand p e o p l e , the t h r e e c i t i e s of G a i t , K i t c h e n e r and W a t e r l o o making up s e v e n t y -f i v e per c e n t of t h i s p o p u l a t i o n . S u b s e q u e n t l y , the '"Ontario, Report of the Committee on T a x a t i o n , L. S m i t h , Commissioner, T o r o n t o , September 1967, p. 13; and on page 510, twenty-two r e g i o n s , i n t h r e e c l a s s e s — m e t r o p o l i t a n , u r b a n i z i n g , and county — are o u t l i n e d f o r t h e p r o v i n c e . ^ T o r o n t o Globe and M a i l , op. c i t . 3 I b i d . 4 I b i d . 62 p r o v i n c i a l government and l o c a l m u n i c i p a l i t i e s have g i v e n g r e a t e r r e c o g n i t i o n t o the f a c t t h a t many of the r e g i o n a l problems cannot be s o l v e d by numerous l o c a l p l a n n i n g a u t h o r i t i e s . T h e r e f o r e , p l a n n i n g workshops have been h e l d t h r o u g h o u t the p r o v i n c e , i n an attempt t o f a m i l i a r i z e l o c a l a u t h o r i t i e s both w i t h the work of the Department of M u n i c i p a l A f f a i r s and w i t h t h e i r own r e s p o n s i b i l i t i e s . The r e s u l t of the s e has been an i n d i c a t i o n on the p a r t of the l o c a l m u n i c i p a l i t i e s t h a t t h e y are w i l l i n g t o change t h e i r p r e s e n t system of o r g a n i z a t i o n as f a r as c e r t a i n f u n c t i o n s are concerned. With the com m i s s i o n i n g of the Mayo Rep o r t i n 1965^" j , by the N i a g a r a group, the M i n i s t e r of M u n i c i p a l A f f a i r s has s e t up o t h e r l o c a l g o vern-ment r e v i e w s : the P e e l - H a l t o n s t u d y l e d by T. J . P l u n k e t t , the O t t a w a - E a s t v i e w - C a r l e t o n s t u d y d i r e c t e d by M. V. J o n e s , and the N o r t h w e s t e r n s t u d y r e l e a s e d l a t e i n 1967 by E r i c Hardy. F u r t h e r s t u d i e s are underway f o r the W a t e r l o o a r e a , C e n t r a l O n t a r i o , and E l g i n County. The f i r s t of the s e r e l e a s e d was the Jone s ' r e p o r t i n o June of 1965. I t recommended a government system f o r the whole of C a r l e t o n County i n c l u d i n g the C i t y of Ottawa 1 S e e page 53. ^ O n t a r i o , Department of M u n i c i p a l A f f a i r s , Ottawa- C a r l e ton-Renfrew L o c a l Government Review, M. V. J o n e s , Commissioner, T o r o n t o , 1965. 63 and the m u n i c i p a l i t y of E a s t v i e w , which would a b o l i s h a l l t w e l v e e x i s t i n g m u n i c i p a l i t i e s , and the f o r m a t i o n of d i s t r i c t c o u n c i l s t o t e n d t o a l i m i t e d range of f u n c t i o n s , but m a i n l y t o send r e p r e s e n t a t i v e s t o a r e g i o n a l c o u n c i l which would have area-wide r e s p o n s i b i l i t i e s . On the b a s i s of p u b l i c and c i v i l s e r v i c e r e a c t i o n s , the Department o f M u n i c i p a l A f f a i r s r e j e c t e d Jones' p r o p o s a l . In F e b r u a r y , 1 9 6 8 1 , the M i n i s t e r announced t h a t by J a n u a r y , 1969, the r e g i o n w i l l have a t w o - t i e r form of government, d i f f e r i n g from J o n e s ' recommendations b a s i c a l l y i n t h a t the p r e s e n t l o c a l m u n i c i p a l i t i e s would not be done away w i t h or t h e i r b o u n d a r i e s changed. The r e g i o n a l c o u n c i l w i l l be composed of e l e c t e d members from the c o u n c i l s of the l o c a l m u n i c i -p a l i t i e s , e x c e p t f o r the chairman. The f u n c t i o n s c a r r i e d out by t h i s r e g i o n a l c o u n c i l w i l l i n c l u d e assessment, a r t e r i a l r o a d maintenance, major w a t e r , sewage and d r a i n a g e works, r e g i o n a l p l a n n i n g , c a p i t a l f i n a n c i n g , and w e l f a r e s e r v i c e s . A t the same t i m e , however, came the announcement by a d o m i n i o n - p r o v i n c i a l group ( i n c l u d i n g the Department of M u n i c i p a l A f f a i r s ) of the i n t e n t i o n t o e s t a b l i s h a f e d e r a l d i s t r i c t f o r the c a p i t a l . As e x p r e s s e d by the p r e s e n t mayor 2 of E a s t v i e w , the g e n e r a l o p i n i o n i s t h a t t h i s would l e a d t o an " o v e r g o v e r n i n g " , and t h a t t h e r e i s need f o r o n l y one, T o r o n t o Globe and M a i l , F e b r u a r y 3, 1968, p. 1. T o r o n t o Globe and M a i l , op. c i t . 64 p r e f e r a b l y a f e d e r a l d i s t r i c t , government body f o r the r e g i o n . The N i a g a r a r e p o r t by P r o f e s s o r Mayo i n 1966 1 recom-mended a t w o - t i e r system of l o c a l government f o r the r e g i o n , c o m p r i s i n g a r e g i o n a l m u n i c i p a l i t y , Metro N i a g a r a , and twelve-member m u n i c i p a l i t i e s , c i t i e s and boroughs, s i m i l a r t o the p r e s e n t M e t r o p o l i t a n T o r o n t o system. However, the p roposed Metro C o u n c i l would be c o m p rised of the t w e l v e mayors, t w e l v e c o u n c i l members e l e c t e d at l a r g e , and e l e v e n a d d i t i o n a l c o u n c i l members t o be e l e c t e d a t l a r g e from the m u n i c i p a l i t i e s of twenty thousand p o p u l a t i o n and o v e r . Each member i n the m e t r o p o l i t a n government would s e r v e a t h r e e - y e a r term i n o f f i c e . The s c h o o l system would a l s o be r e o r g a n i z e d on a t w o - t i e r b a s i s . The m e t r o p o l i t a n c o u n c i l would i s s u e a l l d ebentures f o r m u n i c i p a l i t i e s , s c h o o l b o a r d s , and the l o c a l s p e c i a l purpose b o d i e s . T h i s was b a s i c a l l y the p l a n framework t h a t was put f o r t h f o r the O t t a w a - C a r l e t o n r e g i o n by the M i n i s t e r of M u n i c i p a l A f f a i r s . 2 The P l u n k e t t Commission r e p o r t f o r P e e l - H a l t o n c o u n t i e s , a f t e r d e a l i n g v e r y c a r e f u l l y w i t h the p r e s e n t s t r u c t u r e and n a t u r e of the two c o u n t i e s , recommended the O n t a r i o , Department of M u n i c i p a l A f f a i r s , N i a g a r a L o c a l Government Review, H. B. Mayo, Commissioner, T o r o n t o , 1966. o O n t a r i o , Department of M u n i c i p a l A f f a i r s , P e e l - H a l t o n L o c a l Government Review, op. c i t . 65 a b o l i t i o n of a l l e x i s t i n g l o c a l governments i n t h e s e two c o u n t i e s and t h e i r r eplacement by two s i n g l e - t i e r a g e n c i e s , one f o r the s o u t h e r n u r b a n i z e d a r e a , and one f o r the n o r t h e r n r u r a l - a g r i c u l t u r a l a r e a . To d a t e , t h e r e has been no known r e a c t i o n t o t h e s e p r o p o s a l s . The O n t a r i o Committee on T a x a t i o n , the Smith Report of September, 1967, made p r o p o s a l s i n the course of i t s e x a m i n a t i o n of the p r o v i n c i a l - m u n i c i p a l t a x s t r u c t u r e , f o r changes i n the s t r u c t u r e of l o c a l government. "We b e l i e v e t h a t the f u t u r e of the c o u n t y , the p r o c e d u r e s open t o those who seek or oppose l o c a l boundary changes, the r e l a t i o n s h i p of the c i t y or s e p a r a t e d town t o the county or o t h e r r e g i o n a l u n i t of government and the d e s i r a b i l i t y or o t h e r w i s e of c o n s o l i d a t i n g or r e f a s h i o n i n g o t h e r u n i t s of l o c a l government s h o u l d be t a k e n up as a s u b j e c t of prime importance and e a r l y p r i o r i t y by the O n t a r i o Govern-ment." 1 Based upon c r i t e r i a of a c c e s s and s e r v i c e , twenty-two r e g i o n s -- m e t r o p o l i t a n , u r b a n i z i n g or county — were proposed w i t h the j u d i c i a l f u n c t i o n b e i n g l e f t e n t i r e l y t o the p r o v i n c e . The d i s t r i b u t i o n of f u n c t i o n s t o be p e r -formed by these t h r e e d i f f e r e n t k i n d s of r e g i o n s was des-c r i b e d i n f u r t h e r j u s t i f y i n g the proposed s t r u c t u r e . '•Ontario M u n i c i p a l A s s o c i a t i o n , 1962, Submission t o the E x e c u t i v e C o u n c i l of the P r o v i n c e of O n t a r i o , p. 12, r e p r i n t e d i n the R e p o r t of the O n t a r i o Committee on T a x a t i o n . 66 L a t e r , i n November of 1967, the government announced t h a t some f i f t e e n hundred s c h o o l boards would be a b o l i s h e d as of J a n u a r y , 1969, t o c o n s o l i d a t e the a d m i n i s t r a t i o n of the p r o v i n c e ' s e d u c a t i o n i n one hundred c o u n t y - s i z e boards of e d u c a t i o n . They were a l s o t o be g i v e n the power t o 1 i s s u e s e p a r a t e t a x b i l l s t o the p u b l i c . T h i s c o n f i r m s the t r e n d toward r e o r g a n i z a t i o n of the l o c a l s t r u c t u r e s , but how these p a r t i c u l a r u n i t s w i l l f i t i n w i t h the r e g i o n a l governmental s t r u c t u r e s when they come i n t o e x i s t e n c e i s a m a t t e r which a p p a r e n t l y has not y e t been g i v e n s e r i o u s c o n s i d e r a t i o n . The c o u n t y as an a p p r o p r i a t e area w i t h i n which t o c r e a t e a r e g i o n a l government cannot be c o n s i d e r e d a f e a s i b l e l o n g - r a n g e p r o p o s i t i o n . The b o u n d a r i e s were c r e a t e d over a c e n t u r y ago, and t oday the county b e a r s l i t t l e r e l a t i o n t o what would be c o n s i d e r e d a r e g i o n , i n the sense of a r e g i o n and i t s v a r i o u s p a r t s h a v i n g s i m i l a r development problems and needs. In summary, the main e v e n t s l e a d i n g t o the e s t a b l i s h -ment of r e g i o n a l government, whatever i t s form, are l i s t e d i n p o i n t form below. 1900-1910 the c r e a t i o n of the O n t a r i o M u n i c i p a l A s s o c i a t i o n , a f i r s t s t e p i n the o r g a n i -z a t i o n of l o c a l government r e p r e s e n t a t i v e s f o r the purposes of e x p r e s s i n g t h e i r v i e w s ; ^ T o r o n t o Globe and M a i l , November 15, 1967, p. 1 67 1953 the e s t a b l i s h m e n t of M e t r o p o l i t a n T o r o n t o as an i n d i c a t i o n t o l o c a l government of how some of t h e i r problems c o u l d be s o l v e d ; 1960 the e s t a b l i s h m e n t of the A s s o c i a t i o n of O n t a r i o C o u n t i e s , through which county problems c o u l d be d i s c u s s e d and a s s e s s e d ; 1963 the N i a g a r a P e n i n s u l a M u n i c i p a l Committee on Urban and R e g i o n a l Research c r e a t e d , the f i r s t r e g i o n a l m u n i c i p a l o r g a n i z a -t i o n t o examine the p o s s i b i l i t i e s of a form of r e g i o n a l government; 1965 the P r i n c e Edward and H a s t i n g s c o u n t i e s c r e a t e a R e g i o n a l E x e c u t i v e Committee, as a p r a c t i c a l s t e p towards s o l v i n g some of t h e i r common problems; 1965 Conference on R e g i o n a l Development and Economic Change, sponsored by the D e p a r t -ment of Economics and Development, drew t o g e t h e r many w e l l - i n f o r m e d s p e c i a l i s t s on r e g i o n a l development and government; 1965 Report of the S e l e c t Committee on the M u n i c i p a l A c t and R e l a t e d A c t s , the B e c k e t t R e p o r t , which made recommendations f o r the change i n s t r u c t u r e of l o c a l govern-ment on the b a s i s of f i n a n c i a l c o n d i t i o n s of thes e l o c a l governments; 1965 O t t a w a - C a r l e t o n - R e n f r e w L o c a l Government Review, the f i r s t of a s e r i e s e x a m i n i n g p o s s i b l e s t r u c t u r a l and a d m i n i s t r a t i v e changes i n l o c a l government; 1966 "Design f o r Development", a w h i t e paper on p r o v i n c i a l p o l i c y f o r r e g i o n a l d e v e l o p -ment, and the c r e a t i o n of the C a b i n e t Committee on R e g i o n a l Development, a f i r s t s t e p i n c o o r d i n a t i n g d e p a r t m e n t a l p o l i c y ; 1966 the e s t a b l i s h m e n t of a j o i n t p l a n n i n g board f o r the whole of the County of W a t e r l o o , a r e c o g n i t i o n of the need f o r t h i s f u n c t i o n t o be on a s c a l e l a r g e r than one m u n i c i p a l i t y ; 68 1966 Niagara L o c a l Government Review; 1966 P e e l - H a l t o n L o c a l Government Review; 1967 Report of the O n t a r i o Committee on T a x a t i o n , the Smith Report, i n an attempt t o r e c o n c i l e " s t r u c t u r e with f i n a n c e " , suggested twenty-two government r e g i o n s f o r Southern O n t a r i o ; 1968 the announcement of the c o n s o l i d a t i o n as of January 1, 1969, of the p r o v i n c e ' s s c h o o l boards and of the boards of educa-t i o n . With these examinations i n t o the p o s s i b i l i t i e s of the r e o r g a n i z a t i o n of government f u n c t i o n s onto the r e g i o n a l l e v e l , no stone of l o c a l government a c t i v i t y has been l e f t unturned. The Departments of M u n i c i p a l A f f a i r s and Economics and Development, i n a u t h o r i z i n g the r e p o r t s of the Smith Commission, the l o c a l government reviews and the r e g i o n a l economic surveys, have made important s t e p s towards under-s t a n d i n g the f i n a n c i a l and t a x a t i o n problems of the l o c a l m u n i c i p a l i t i e s and t h e i r needs i n r e a l i z i n g t h e i r economic and s o c i a l p o t e n t i a l . But simply d i s c o v e r i n g and understanding these problems does not s o l v e them. Through the l e g i s l a t i o n which the two departments a d m i n i s t e r , t h e i r a t t a c k of developmental i s s u e s on the r e g i o n a l s c a l e i s through a l t o -gether uncoordinated techniques. While each department seems t o be c a r r y i n g on programmes i n a very e n e r g e t i c manner, the end f o r which they are working appears to have been somewhat clouded; Jones' pronouncement on 69 "means t h a t a r e f a u l t y and i n c a p a b l e o f l e a d i n g t o a n y u n i f i e d o b j e c t i v e " a p p e a r s t o h o l d some t r u t h . 70 CHAPTER V I — APPRAISAL AND CONCLUSIONS P l a n n i n g has been d e f i n e d i n the second c h a p t e r of t h i s t h e s i s as a p r o c e s s based on law and d i r e c t e d towards i n f l u e n c i n g p r i v a t e or p u b l i c development r e -s u l t i n g i n the b e s t environment and the soundest use of r e s o u r c e s t h a t man i s c a p a b l e of e f f e c t i n g . 1 T h i s d e f i n i t i o n r e f e r s t o two a s p e c t s of the p r o c e s s of p l a n n i n g : f i r s t , the d e s i g n of p h y s i c a l development and the p r o t e c t i o n of the n a t u r a l and man-made e n v i r o n -ment, r e f e r r e d t o as p h y s i c a l p l a n n i n g ; and second, the optimum use and development of r e s o u r c e s , r e f e r r e d t o as economic p l a n n i n g . P h y s i c a l and economic p l a n n i n g are two i n t e r d e p e n d e n t a s p e c t s of the p r o c e s s of p l a n n i n g , and they o f t e n i n t e r a c t i n a s t a t e of c i r c u l a r c a u s a t i o n . In the e x a m i n a t i o n of the p l a n n i n g p r o c e s s as c a r r i e d on i n O n t a r i o , i t has become e v i d e n t t h a t i t i s not the c r i t e r i a f o r the a l l o c a t i o n of governmental f u n c t i o n s l i s t e d i n Chapter I I which are most r e l e v a n t t o an a p p r a i s a l of the h y p o t h e s i s . What i s of g r e a t e r See p. 10. 71 s i g n i f i c a n c e are the a c t u a l f u n c t i o n s related t o p l a n n i n g f o r p h y s i c a l and economic development as c a r r i e d out by the Department of M u n i c i p a l A f f a i r s and by the Department of Economics and Development. P l a n n i n g , a t the community, r e g i o n a l , or p r o -v i n c i a l l e v e l , as a p r o c e s s a f f e c t i n g the p h y s i c a l e n v i r o n m e n t a l development a l o n g w i t h the economic and s o c i a l development has become a c r u c i a l t o o l i n the e f f e c t i v e and e f f i c i e n t management of our r e s o u r c e s . The p r o c e s s must have the framework t o ensure i t t a k e s p l a c e i n a c o h e r e n t and u n i f i e d manner. The p l a n n i n g f u n c t i o n as f o r e s e e n i n the f i r s t Department of P l a n n i n g and Development A c t was a s t e p i n the a'above d i r e c t i o n : "The M i n i s t e r s h a l l c o l l a b o r a t e w i t h a view t o formu-l a t i n g p l a n s t o c r e a t e , a s s i s t , d e v e l o p , and m a i n t a i n p r o d u c t i v e employment and t o d e v e l o p the human and m a t e r i a l r e s o u r c e s of O n t a r i o , and t o t h a t end s h a l l c o o r d i n a t e the work and f u n c t i o n s of the departments of the p u b l i c s e r v i c e of O n t a r i o . " ^ The t r a n s f e r of some of i t s f u n c t i o n s t o the Department of M u n i c i p a l 2 A f f a i r s i n 1961 was perhaps f u n c t i o n a l l y sound i n terms -'-Ontario, The Department of P l a n n i n g and Development A c t , 1950, S e c t i o n 3. 2 S e e p. 41; a l s o p. 43. 72 o f a d m i n i s t r a t i v e e f f i c i e n c y , b u t i t meant t h a t t h e o r i g i n a l p u r p o s e o f t h e D e p a r t m e n t o f P l a n n i n g and D e v e l o p m e n t c o u l d n e v e r be r e a l i z e d . As t h e r e m a i n i n g s e c t i o n s o f t h e D e p a r t m e n t o f P l a n n i n g and D e v e l o p m e n t became a p a r t o f t h e D e p a r t m e n t o f E c o n o m i c s , t h e gap w i d e n e d b e t w e e n what i n f a c t t h e f u n c t i o n s a n d o r i g i n a l N p u r p o s e o f t h e D e p a r t m e n t o f P l a n n i n g and D e v e l o p m e n t h a d b e e n and what t h e y now w e r e . The D e p a r t m e n t o f M u n i c i p a l A f f a i r s 1 , i n a d m i n i s -t e r i n g t h e P l a n n i n g A c t s i n c e 1 9 6 0 , h a s h a d a d e g r e e o f c o n t r o l o v e r t h e k i n d o f p h y s i c a l d e v e l o p m e n t t h a t c o u l d t a k e p l a c e w i t h i n t h e p r o v i n c e . W i t h t h e a p p r o v a l o f s u b d i v i s i o n s a n d o f f i c i a l p l a n s s u b j e c t t o 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 , and w i t h t h e i n d i v i d u a l ' s r i g h t t o a p p e a l t o t h e O n t a r i o M u n i c i p a l B o a r d , t h e d e v e l o p -ment i n t h e p r o v i n c e f o l l o w e d t o a l a r g e e x t e n t t h e p h y s i c a l d e v e l o p m e n t a l p o l i c i e s as s e t down by t h e O n t a r i o g o v e r n m e n t . The p l a n n i n g b o a r d s e s t a b l i s h e d u n d e r t h e P l a n n i n g A c t a r e o f t e n t h e m e d i a t h r o u g h w h i c h p r o v i n c i a l p o l i c i e s a nd programmes a r e i m p l e m e n t e d a t t h e m u n i c i p a l l e v e l , a nd s e v e r a l o f t h e s e h a v e become c o u n t y - s i z e d b o a r d s 2 i n d i c a t i n g t h e t r e n d t o w a r d s a r e g i o n a l a p p r o a c h See A p p e n d i x E. See p. 6 1 . 73 t o p h y s i c a l development. The R e g i o n a l Development B r a n c h 1 of the Department of Economics and Development i n g i v i n g a d v i s o r y a i d t o the r e g i o n a l development c o u n c i l s w i t h i n each of the t e n economic r e g i o n s , i s a l s o a f f e c t i n g the p h y s i c a l development o f each r e g i o n i t d e a l s w i t h . But as has been i n d i c a t e d e a r l i e r , t h e s e r e g i o n s are n e i t h e r those w i t h which the Department of M u n i c i p a l A f f a i r s works through the j o i n t p l a n n i n g b o a r d s , nor were t h e i r b o u n d a r i e s d e t e r m i n e d w i t h a view as t o what would be the most v i a b l e r e g i o n f o r p l a n n i n g f o r development. The m a j o r i t y of the economic r e g i o n s c r e a t e d i n 1953 are made up of many c o u n t i e s , and t h e y do not r e f l e c t the g r e a t d i s p a r i t i e s e x i s t i n g w i t h i n them i n terms of p o p u l a t i o n d e n s i t y , economic a c t i v i t y , and of the^needs 2 of the p e o p l e . While l o c a l government has had a s t r o n g t r a d i t i o n a l waryness of c o n t r o l from Queen's P a r k , the day i s over when i t i s p o s s i b l e f o r them t o m a i n t a i n t h e i r i s o l a t i o n w i t h any degree of s u c c e s s . S i n c e the changes t h a t are n e c e s s a r y i n m u n i c i p a l o r g a n i z a t i o n must e v e n t u a l l y d e r i v e from the p r o v i n c i a l government, i t i s i n the s t r u c t u r e of "'"See Appendix D, 2 S e e Appendix H; a l s o p. 40, 74 t h e e x i s t i n g a c t s r e l a t e d t o m u n i c i p a l a d m i n i s t r a t i o n a n d p l a n n i n g t h a t l o c a l g o v e r n m e n t i s most i n t e r e s t e d . B u t d e s p i t e a l l c l a i m s by t h e D e p a r t m e n t o f E c o n o m i c s and D e v e l o p m e n t 1 t h a t t h e e c o n o m i c p o l i c y o f t h e g o v e r n -ment i s b e i n g p a s s e d down t h r o u g h t h e r e g i o n a l d e v e l o p m e n t c o u n c i l s , i t i s d i f f i c u l t t o a c k n o w l e d g e t h a t t h e e n d r e s u l t i s p l a n n i n g f o r r e g i o n a l d e v e l o p m e n t i n a c o m p r e -h e n s i v e , c o o r d i n a t e d way. M u n i c i p a l i t i e s h ave f o r a l o n g e r p e r i o d o f t i m e h a d much more d i r e c t c o n t a c t w i t h t h e l e g i s l a t i o n o f t h e P l a n n i n g A c t , t h e A s s e s s m e n t A c t , and t h e M u n i c i p a l A c t , a d m i n i s t e r e d b y t h e D e p a r t m e n t o f M u n i c i p a l A f f a i r s . I t i s t h e s e c o n t r o l s , be t h e y p o s i t i v e o r n e g a t i v e , w h i c h a l s o may i n f l u e n c e t o an e x t e n t t h e e c o n o m i c d e v e l o p m e n t t h a t o c c u r s i n a c o m m u n i t y . What i s b e i n g a t t e m p t e d h e r e i s t o i n d i c a t e t h a t t h e i n t e r d e p e n d e n c e o f t h e v a r i o u s a s p e c t s o f t h e p r o c e s s o f p l a n n i n g i s s o m e t h i n g w h i c h o v e r t h e p a s t e i g h t y e a r s p a r t i c u l a r l y h a s n o t been r e c o g n i z e d by t h e p r o v i n c i a l 2 g o v e r n m e n t . What i s o f p a r t i c u l a r i m p o r t a n c e t o t h e f o r t h c o m i n g c r e a t i o n o f r e g i o n a l g o v e r n m e n t w i l l be t h e r e f l e c t i o n i n r e g i o n a l p l a n n i n g l e g i s l a t i o n o f t h e w i d e r T o r o n t o G l o b e and M a i l , J a n u a r y 1 1 , 1 9 6 8 , p. 1 2 . 2 s e e pp. 12 and 39. 75 i m p l i c a t i o n s f o r development than s o l e l y those of a p h y s i c a l n a t u r e . The P l a n n i n g A c t t o date has been a form of l e g i s l a t i o n d e a l i n g b a s i c a l l y w i t h p h y s i c a l development and has borne v e r y l i t t l e w o r k i n g r e l a t i o n t o p o l i c y guidance g i v e n by o t h e r departments of the p r o v i n c i a l government. With the e s t a b l i s h m e n t of r e g i o n a l government thr o u g h o u t the p r o v i n c e of O n t a r i o , the Department of M u n i c i p a l A f f a i r s w i l l c o n t i n u e t o a d m i n i s t e r the M u n i c i p a l , the P l a n n i n g , and the Assessment A c t s which would be broadened i n t h e i r scope t o d e a l w i t h the r e g i o n a l governments. I f the Department of Economics and Development c o n t i n u e d t o promote economic d e v e l o p -ment p o l i c i e s on the b a s i s of t e n p r e s e n t economic r e g i o n s and t h e i r r e g i o n a l c o u n c i l s , t h i s would compound the d i f f i c u l t i e s met by each m u n i c i p a l i t y w i t h i n the r e g i o n a l government i n coming t o a concensus w i t h the o t h e r m u n i c i p a l i t i e s as t o how t o approach development i s s u e s . But i n the event t h a t the Department of Economics and Development adopts the new government r e g i o n s t o p e r f o r m i t s r e g i o n a l economic a d v i s o r y r o l e , the problem of u n r e l a t e d and u n c o o r d i n a t e d b o u n d a r i e s w i l l be p a r t i a l l y overcome. At the C a b i n e t l e v e l , the C o o r d i n a t i n g Committee l M D e s i g n f o r Development", op. c i t . , p. 22; a l s o see pp. 57, 58, 59. 76 w i l l c o n t i n u e t o h a v e an i m p o r t a n t r o l e t o p l a y i n b r i n g i n g a f o c u s t o t h e p l a n n i n g f u n c t i o n i n t h e i r c o n c e r n w i t h t h e " p o l i c y , p r i o r i t i e s , p l a n n i n g , a nd c o o r d i n a t i o n s o f g o v e r n m e n t a c t i v i t y . " 1 One o f t h e i r c o n c e r n s s h o u l d be i n d e f i n i n g v e r y c l e a r l y t h e r e l a -t i o n s h i p s t h a t t h e r e s e a r c h f u n c t i o n and t h e r e g i o n a l a d v i s o r y b o a r d s o f t h e D e p a r t m e n t o f E c o n o m i c s and D e v e l o p m e n t w i l l h a v e w i t h t h e D e p a r t m e n t o f M u n i c i p a l A f f a i r s a n d t h e a c t s t h a t i t a d m i n i s t e r s . B u t i n t e r m s o f p o l i c y f o r 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 , t h e i m p l e m e n t a t i o n o f t h i s p o l i c y a t t h e a d m i n i s t r a t i v e a nd p r o f e s s i o n a l l e v e l o f t h e p r o v i n c i a l g o v e r n m e n t s h o u l d a l s o be c o o r d i n a t e d . B e l o w , t h e s e v e r a l a l t e r n a t i v e s t r u c t u r e s o f t h e p r o -v i n c i a l g o v e r n m e n t ' s o r g a n i z a t i o n f o r t h e r e g i o n a l p l a n n i n g f u n c t i o n t h a t a r e a i m e d a t b r i n g i n g t h i s c o o r d i n a t i o n a nd f o c u s t o t h e i m p l e m e n t a t i o n o f p o l i c y a r e o u t l i n e d . To c l a r i f y , t h e o r g a n i z a t i o n o f t h e p r o v i n c i a l d e p a r t m e n t s most d i r e c t l y i n v o l v e d i n p l a n n i n g f o r t h e p h y s i c a l a n d e c o n o m i c d e v e l o p m e n t o f t h e r e g i o n , M u n i c i p a l A f f a i r s , and E c o n o m i c s and D e v e l o p m e n t , i s v i e w e d a s t h e one d e p a r t m e n t , M u n i c i p a l A f f a i r s , p e r -1 I b i d , 7 7 f o r m i n g a c o n s e n t i n g and d i r e c t i n g r o l e t o the r e g i o n a l government i n terms of p h y s i c a l development. The o t h e r , Economics and Development, p e r f o r m s an a d v i s o r y r o l e w i t h r e g a r d t o r e g i o n a l economic development. Super-imposed i s the C a b i n e t Committee and the Departmental A d v i s o r y Subcommittee w i t h i t s r o l e of c o o r d i n a t i o n of p o l i c y and p r i o r i t i e s . A t t h i s p o i n t , i t may be assumed t h a t r e g i o n a l d e v e l o p m e n t a l p o l i c y i s c o o r d i n a t e d . To ensure t h a t i m p l e m e n t a t i o n of t h i s p o l i c y i s c o o r d i n a t e d a t the a d m i n i s t r a t i v e l e v e l , a f i r s t a l t e r n a t i v e i s s u g g e s t e d . The D e p a r t m e n t a l A d v i s o r y Subcommittee i s headed by the M i n i s t e r of Economics and Development, w i t h r e p r e s e n t a t i o n from s i x o t h e r p r o v i n c i a l departments, i n c l u d i n g the Department of M u n i c i p a l A f f a i r s . 1 I t i s s u g g e s t e d t h a t these r e p r e s e n t a t i v e s become a f u l l - t i m e , or permanent, a d v i s o r y body; each member b e i n g employed by i t s r e s p e c t i v e department t o a c t as a c o o r d i n a t o r of r e s e a r c h and development programmes u n d e r t a k e n by each department. An a l t e r n a t i v e t o t h i s type of c o o r d i n a t i n g body would i n v o l v e a s m a l l group of c i v i l s e r v a n t s w o r k i n g out of one department, p r e f e r a b l y the Department of See p. 58. 78 M u n i c i p a l A f f a i r s o r E c o n o m i c s and D e v e l o p m e n t s T h i s p a r t i c u l a r b o d y w o u l d s e r v e a s a c e n t r a l i n f o r m a -t i o n s o u r c e on r e g i o n a l d e v e l o p m e n t programmes and w o r k c l o s e l y w i t h t h e r e p r e s e n t a t i v e s on t h e A d v i s o r y Sub-c o m m i t t e e . B o t h o f t h e s e f i r s t t w o p r o p o s a l s a r e b a s e d on t h e p r e m i s e t h a t p l a n n i n g f o r r e g i o n a l d e v e l o p m e n t i s u l t i m a t e l y d e p e n d e n t u pon t h e p r o v i s i o n s o f many d e p a r t m e n t s o f t h e p r o v i n c i a l g o v e r n m e n t . T h i s f a c t c a n n o t be d i s p u t e d . B u t a t h i r d a l t e r n a t i v e i s p r o p o s e d i n an a t t e m p t t o t i e i n t h e d e v e l o p m e n t a l a s p e c t s o f t h e r e g i o n a l p l a n n i n g p r o c e s s more c l o s e l y . S i n c e t h e r e s e a r c h s e c t i o n o f t h e Community P l a n n i n g B r a n c h w o u l d , w i t h t h e r e c o g n i t i o n o f r e g i o n a l g o v e r n m e n t s and r e g i o n a l p l a n n i n g l e g i s l a t i o n , be g i v e n t h e t a s k o f m a k i n g d e t a i l e d i n v e s t i g a t i o n s o f t h e p h y s i c a l d e v e l o p -ment p o l i c i e s and programmes f o r t h e s e r e g i o n s , i t i s p r o p o s e d t h a t t h e r e s e a r c h f u n c t i o n be more m e a n i n g f u l l y r e o r g a n i z e d i n t o a r e g i o n a l s t u d i e s g r o u p and a s p e c i a l s t u d i e s g r o u p . T h i s w o u l d e n a b l e t h e r e g i o n a l s t u d i e s g r o u p t o work more d i r e c t l y w i t h t h e o t h e r s e c t i o n s i n t h e d e p a r t m e n t i t s e l f , t h e s e c t i o n s w h i c h w o u l d d e a l d i r e c t l y w i t h t h e r e g i o n a l g o v e r n m e n t on i s s u e s o f p h y s i c a l p l a n n i n g and a d m i n i s t r a t i o n , and w i t h o t h e r 7 9 d e p a r t m e n t s . I n m a k i n g s t u d i e s o f t h e r e g i o n s , c l o s e c o m m u n i c a t i o n w o u l d n e c e s s a r i l y be made, f o r e x a m p l e w i t h t h e r e s e a r c h s e c t i o n o f t h e D e p a r t m e n t o f E c o n o m i c s and D e v e l o p m e n t . The o t h e r g r o u p w i t h i n t h e r e s e a r c h s e c t i o n o f t h e D e p a r t m e n t o f M u n i c i p a l A f f a i r s ( t h e s p e c i a l s t u d i e s g r o u p ) w o u l d n o t assume s u c h c l o s e o p e r a t i o n a l t i e s w i t h t h e r e g i o n a l b r a n c h e s o f t h e o t h e r d e p a r t m e n t s . T h i s w o u l d c l a r i f y t h e f u n c t i o n o f t h e r e s e a r c h s e c t i o n a n d make p o s s i b l e g r e a t e r c o -o r d i n a t i o n on i s s u e s o f r e g i o n a l p o l i c y i m p l e m e n t a t i o n b e t w e e n p r o v i n c i a l d e p a r t m e n t s . I n t h e e x a m i n a t i o n o f t h e h y p o t h e s i s p r e s e n t i n t h i s t h e s i s : t h a t a l t e r i n g t h e p r o v i n c i a l d e p a r t m e n t a l o r g a n i z a t i o n i s a n e c e s s a r y p r e r e q u i s i t e t o t h e s u c c e s s - f u l e s t a b l i s h m e n t o f t h e p l a n n i n g f u n c t i o n w i t h i n r e g i o n a l g o v e r n m e n t , t h e q u e s t i o n must be a s k e d w h e t h e r t h e p r o p o s e d c h a n g e s d e s c r i b e d above w i l l be e f f e c t i v e i n m a k i n g f o r r e g i o n a l p l a n n i n g l e g i s l a t i o n t h a t i s com-p r e h e n s i v e a n d c o o r d i n a t e d i n i t s s c o p e . The s u g g e s t e d c h a n g e s a r e t h e m s e l v e s v e r y m i n o r i n t e r m s o f p r o v i n c i a l d e p a r t m e n t a l o r g a n i z a t i o n , b u t t h e y a l l i n v o l v e a change i n t h e f r a m e w o r k o f g o v e r n m e n t t h a t c o u l d make p o s s i b l e a more e f f i c i e n t and r a t i o n a l i m p l e m e n t a t i o n o f p o l i c y f o r t h e e c o n o m i c a nd p h y s i c a l d e v e l o p m e n t o f t h e p r o v i n c e . BIBLIOGRAPHY BIBLIOGRAPHY BOOKS C o r r y , J . A., Democratic Government and P o l i t i c s , U n i v e r s i t y of T o r o n t o P r e s s , T o r o n t o , 1951. C r a w f o r d , K. G., Canadian M u n i c i p a l Government, U n i v e r s i t y of T o r o n t o P r e s s , T o r o n t o , 1954. D a n i e l s o n , M. N., ed., M e t r o p o l i t a n P o l i t i c s : A Reader L i t t l e , Brown and Co., B o s t o n , 1966. F u l l e r , R. 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S c o t t , S., ed., M e t r o p o l i t a n A r e a Problems, Bureau of P u b l i c A d m i n i s t r a t i o n , U n i v e r s i t y of C a l i f o r n i a , B e r k e l e y , 1961. 81 S p e l t , Jacob, The Urban Development i n S o u t h - C e n t r a l O n t a r i o , VanGorcum and Co., Assen, t h e N e t h e r l a n d s , 1955. Woods, R. C., 1400 Governments, H a r v a r d U n i v e r s i t y P r e s s , Cambridge, M a s s a c h u s e t t s , 1961. ARTICLES AND PERIODICALS B e e c r o f t , E r i c , "Agenda f o r R e g i o n a l Government", Canadian F e d e r a t i o n of Mayors and M u n i c i p a l i t i e s , M o n t r e a l , 1963. B l u m e n f e l d , Hans, " R e g i o n a l P l a n n i n g " , PLAN, Canada, V o l . I , No. 2, (1960). Brownstone, M., " I s R e g i o n a l Government N e c e s s a r y ? 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P l u m p t r e , T o r o n t o , 1959. , R e p o r t of t h e Committee on the O r g a n i z a t i o n of Government, W a l t e r Gordon, Chairman, T o r o n t o , 1959. , R e v i s e d S t a t u t e s of O n t a r i o , 1960, The P l a n n i n g A c t , amended t o 1966. 85 O n t a r i o , R e v i s e d S t a t u t e s of O n t a r i o , 1960, The M u n i c i p a l A c t , amended t o 1962. , R o y a l Commission on M e t r o p o l i t a n T o r o n t o , C. G o l d e n b e r g , Chairman, T o r o n t o , 1965. , S e l e c t Committee t o Examine and t o Study t h e A d m i n i s t r a t i v e and E x e c u t i v e Problems of the Government of O n t a r i o , I n t e r i m R e p o r t , November 1960. , White Paper on R e g i o n a l Development, T o r o n t o , Dec. 1965. P e a r s o n , Norman, " F a i l u r e of P l a n n i n g i n O n t a r i o " , C. E. R e s e a r c h Report No. 34, Queen's U n i v e r s i t y , K i n g s t o n , 1964. U n i t e d S t a t e s , 8 7 t h Congress, "Government S t r u c t u r e , O r g a n i z a t i o n , and 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 s " , Washington, 1961. APPENDIX A GOVERNMENT DEPARTMENTS OF THE PROVINCE OF ONTARIO AS OF SEPTEMBER. 1967 86 APPENDIX A GOVERNMENTAL DEPARTMENTS OF THE PROVINCE OF ONTARIO AS OF SEPTEMBER, 1967 1 Department of A g r i c u l t u r e Department of the A t t o r n e y G e n e r a l Department of C i v i l S e r v i c e (1962) Department of Economics and Development (1962); p r e v i o u s l y s e p a r a t e departments of Economics and of P l a n n i n g and Development (1944) Department of E d u c a t i o n Department of Energy and Resources Management (1961); p r e v i o u s l y known as Energy and Resources (1959) Department of F i n a n c i a l and Commercial A f f a i r s (1966) Department of H e a l t h (1924) Department of Highways (1915) Department of Ins u r a n c e (1924) Department of Labour (1919) Department of Lands and F o r e s t s Department of Mines Department of M u n i c i p a l A f f a i r s (1935) Department of P r o v i n c i a l S e c r e t a r y Department of P u b l i c Records and A r c h i v e s 87 Department of P u b l i c Works Department of Reform I n s t i t u t i o n s (1946) Department of S o c i a l and F a m i l y S e r v i c e s (1967); p r e v i o u s l y P u b l i c W e l f a r e (1931) Department of T o u r i s m and I n f o r m a t i o n (1964); p r e v i o u s l y T r a v e l and P u b l i c i t y (1946) Department of T r a n s p o r t (1957) Department of T r e a s u r y Department of U n i v e r s i t y A f f a i r s (1964) O n t a r i o , The O n t a r i o Committee on T a x a t i o n , R e p o r t , L. S m i t h , Chairman, T o r o n t o , 1967, p. 85. E x c e p t where date i s n o t e d , the date of the e s t a b l i s h -ment of the department was p r i o r t o 1915. APPENDIX B ORGANIZATION CHART, DEPARTMENT OF PLANNING AND DEVELOPMENT, 1959 MINISTER OF PLANNING AND DEVELOPMENT O n t a r i o St.Lawrence Development Commission P u b l i c R e l a t i o n s D i v i s i o n O n t a r i o Research F o u n d a t i o n C o n s u l t a n t s 1 DEPUTY MINISTER Main O f f i c e Community P l a n n i n g Branch Trade and I n d u s t r y Branch O n t a r i o House C o n s e r v a t i o n Branch Housing Branch C i v i l Defence Branch Adapted from Report of the Committee on the O r g a n i z a t i o n of Government i n O n t a r i o , W a l t e r Gordon, Chairman, T o r o n t o , 1959, p. 238. APPENDIX C ORGANIZATION CHART, DEPARTMENT OF MUNICIPAL AFFAIRS, 1959 O n t a r i o M u n i c i p a l Board MINISTER OF MUNICIPAL AFFAIRS M u n i c i p a l A d v i s o r y Committee DEPUTY MINISTER M u n i c i p a l A d m i n i s t r a t i o n B ranch Main. O f f i c e S p e c i a l P r o j e c t s Branch M u n i c i p a l Assessment Branch M u n i c i p a l A u d i t i n g and A c c o u n t i n g Branch Adapted from the Report of the Committee on the O r g a n i z a t i o n of Government i n O n t a r i o , W a l t e r Gordon, Chairman, T o r o n t o , 1959, p. 226. oo CD APPENDIX D ORGANIZATION CHART, DEPARTMENT OF ECONOMICS AND DEVELOPMENT OFFICE OF THE CHIEF ECONOMIST, 1966 MINISTER OF ECONOMICS AND DEVELOPMENT DEPUTY MINISTER C h i e f Economist Economic A n a l y s i s Branch manpower a n a l y s i s f i s c a l - f i n a n c i a l a n a l y s i s i n t e r n a t i o n a l economics economic i n t e l -l i g e n c e and r e p o r t s A p p l i e d Economics Branch •resource s t u d i e s i n d u s t r y s t u d i e s market r e s e a r c h s p e c i a l p r o j e c t s Economic P l a n n i n g Branch c h i e f of f o r e c a s t i n g Fed.-Prov. A f f a i r s S e c r e t a r i a t R e g i o n a l Development Branch r e g i o n a l r e s e a r c h r e g i o n a l d e v e l o p -ment s e r v i c e s O n t a r i o S t a t i s t i c a l C e n t r e r e s e a r c h and development g e n e r a l p r o j e c t s computer o p e r a t i o n s programming •Adapted from O n t a r i o Economic Review, A p r i l , 1966, pp 4-8, "The New Economics and the P r o v i n c e of O n t a r i o " , by H.Ian Macdonald, C h i e f Economist. t o o APPENDIX E ORGANIZATION CHART, DEPARTMENT OF MUNICIPAL AFFAIRS, 1967 WITH PARTICULAR DETAIL ON THE COMMUNITY PLANNING BRANCH MINISTER OF MUNICIPAL AFFAIRS O n t a r i o M u n i c i p a l Board M u n i c i p a l A d v i s o r y Committee DEPUTY MINISTER Main O f f i c e A d m i n i s t r a t i o n Branch Assessment Branch A u d i t i n g and Branch Community P l a n n i n g Branch A d m i n i s t r a t i o n S e c t i o n E x t e n s i o n and F i e l d S e r v i c e s S e c t i o n Research and S p e c i a l S t u d i e s S e c t i o n O f f i c i a l P l a n s S u b d i v i s i o n A d m i n i s t r a t i o n F i e l d S e r v i c e s P l a n n i n g O f f i c e r s P u b l i c a t i o n s S p e c i a l S t u d i e s Research Design and D r a u g h t i n g -adapted from o r g a n i z a t i o n c h a r t s drawn up p e r i o d i c a l l y by Department of M u n i c i p a l A f f a i r s APPENDIX F COUNTIES, SOUTHERN ONTARIO 030 031 i J vJlv"'-. CSSEX 02 MKT 05 LANBTON MIDDLESEX 06 ElSIM M NORFOLK OI ' OXFORD 08. PERTH OE WATERLOO WO BRAMTFQRD On MAlDfWAMO -"fttt. WCtLANO OIS LlffCOLH 014 «*TWMITM Of* MUROM OIT BRUCE QSl RALTM . on « a . oil. vom OXt MCMITOULIN • 030. ALSOMA I SUDBUR* OU Mr* WHO 031 KALnuRTON 1 FDQKTENAC . I CCEGS (Ml. OtMOn CH2 STQmOMT OtX GtCWCARRY 044^raescoTT 0*9 RUSSELL O** CMLTOM k> <$?/</>. V/' ^-vq; ^ \ X 0 2 9 r ~ p PROVINCE of QUEBEC \ 032 028 •2. 027 H U HO N \ , : \ \ \ ,3 \ 033 ) \ 017 i 018 020 y \ \ \ 026 !—•_ -r1 019 i l i ^ . J \ \ \ . . . \ UNITED STATES \ •< \ • > / V \ \ 0 2 3 /" > v ^ 0 1 6 / \ 0 2 2 \ 08 ^ 09 \_ A / 016 r ( 024 \ 025 \ 7; 2; V - — \ v x - \ 010 > ^ Z - 7 . . -If * O N T A * I O UNITED S T A T E S PROVINCE OF ONTARIO SOUTHERN PORTION COUNTIES has© m.ap rece i v e d - J r a m vDiepattment of Munic ipa l A f f a i r s SCAiC OF WILIS APPENDIX G TOWNSHIPS, SOUTHERN ONTARIO PROVINCE of QUEBEC t -r - i \ w * . . . J j t « J : 1 \ '• * • "' • — - V-— *~ ,-•>- \ - ' /». »*• \-.4-- „ / - " - V -( 3*8 j . . . -\ UMTEO STATES *» ^ - i , T '.„ Y i >^ \ J L J 2 > * ^ ' * . ^ 06,109 i ' i s ' 5 " PROVINCE OF ONTARIO SOUTHERN PORTION COUNTIES & TOWNSHIPS TOWNSHIPS UNITED S T A T E S ha&B,^mop receixed from department.of municipo 1 _affairs APPENDIX H ECONOMIC REGIONS, SOUTHERN ONTARIO APPENDIX I TOURIST REGIONS, SOUTHERN ONTARIO, 1967 APPENDIX J CONSERVATION AUTHORITIES, SOUTHERN ONTARIO, 1967
Thesis/Dissertation
eng
Planning
Vancouver : University of British Columbia Library
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Graduate
The evolution of regional planning and government in the province of Ontario
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