Document generated on 09/24/2021 11:42 p.m.

Urban History Review Revue d'histoire urbaine

A History of Commissions Threads of An Planning History Ken Hillis

Volume 21, Number 1, October 1992 Article abstract Early planning in Ottawa takes the form of a piece-meal architectural URI: https://id.erudit.org/iderudit/1019246ar admixture. On paper there remains a series of largely unrealized proposals DOI: https://doi.org/10.7202/1019246ar designed to promote an image symbolic of national identity. Successive federal and municipal agencies worked to various degrees of success to augment See table of contents Ottawa's appearance and amenity. British planner Thomas Adams' departure from, and the subsequent demise of the Federal Commission of Conservation in the early 1920's marked a low point in efforts to evolve comprehensive Publisher(s) planning strategies. The career of Noulan Cauchon, first head of the Ottawa Town Planning Commission, aimed to keep the notion of planning alive in the Urban History Review / Revue d'histoire urbaine city. Certain of his little-acknowledged proposals bear remarkable similarity to the pre-W.W. II planning efforts of MacKenzie King and Jacques Greber. ISSN Cauchon's legacy endures in proposals which appear to have been incorporated into federal planning activities during the post-war era. 0703-0428 (print) 1918-5138 (digital)

Explore this journal

Cite this article Hillis, K. (1992). A History of Commissions: Threads of An Ottawa Planning History. Urban History Review / Revue d'histoire urbaine, 21(1), 46–60. https://doi.org/10.7202/1019246ar

All Rights Reserved © Urban History Review / Revue d'histoire urbaine, 1992 This document is protected by copyright law. Use of the services of Érudit (including reproduction) is subject to its terms and conditions, which can be viewed online. https://apropos.erudit.org/en/users/policy-on-use/

This article is disseminated and preserved by Érudit. Érudit is a non-profit inter-university consortium of the Université de Montréal, Université Laval, and the Université du Québec à Montréal. Its mission is to promote and disseminate research. https://www.erudit.org/en/ A History of Commissions: Threads of An Ottawa Planning History

Ken Hillis

Abstract Recent years have witnessed a re-evalua• ... it shall be my pleasure ... to make tion of the career of MacKenzie King. In the the centre of the intel• Early planning in Ottawa takes the part, this has involved investigating his lectual development of this country form of a piece-meal architectural role as shaper of the physical image of and the Washington of the North.2 admixture. On paper there remains Ottawa, the national capital. While true a series of largely unrealized that King was responsible for "forcing the 1896 marked the beginning of the eco• proposals designed to promote an issue" of long-standing debate about nomic upswing following the "Great image symbolic of national identity. planning the national capital region, his Depression" of 1873-1896. In this year, Successive federal and municipal actions were not taken in a vacuum. This flush with electoral success, Laurier agencies worked to various degrees paper traces aspects of the earlier plan• repeated his Washington of the North of success to augment Ottawa's ning ; of other individu• remarks at a rally at Cartier Square. His appearance and amenity. British als, agencies and ideas that also planner Thomas Adams' departure speech received wide coverage, and from, and the subsequent demise of, contributed in significant measure to the Ottawa's civic elite believed that physical the Federal Commission of eventual built form of the capital. improvements befitting a capital were at Conservation in the early 1920's last at hand. To date, for example, few marked a low point in efforts to In 1884, Wilfrid Laurier had commented: principal thoroughfares had been paved. evolve comprehensive planning "I would not wish to say anything dispar• A committee was struck by City Council strategies. The career of Noulan aging of the capital, but it is hard to say to investigate the relationships of other Cauchon, first head of the Ottawa anything good of it. Ottawa is not a hand• capitals in the British Empire to their Town Planning Commission, aimed to some city and does not appear to be respective governments. It presented its keep the notion of planning alive in destined to become one either."1 By findings in the form of a petition to Laur• the city. Certain of his 1895, speaking to the Ottawa Reform ier in 1897. little-acknowledged proposals bear Association, Laurier's stance had shifted: remarkable similarity to the This report detailed the City's fiscal diffi• pre-W.W. IIplanning efforts of culty, brought on by the Crown's exemp- MacKenzie King and Jacques Greber. Cauchon's legacy endures in proposals which appear to have been incorporated into federal planning activities during the post-ivar era.

Fignre 1: Looking North Along the Driveway, from Fifth Avenue From: Ottawa Improvement Commission. The Capital of , Parks and Driveways, 1899-1925* 1925 (Courtesy National Archives ofCanada/C10847). A History of Commissions

Résumé tion from property taxes under terms of warehouses and lumber yards. From the British Act. As the Maria (Laurier Av.) southward, these Les premiers efforts de planification Union and then Federal governments were acquired and razed, and construc• urbaine à Ottawa ont eu comme had continued to grow since inception in tion of a scenic "Driveway" was begun. résultat un mélange architectural 1859, the City faced a dilemma. New Concurrently, management of Rockliffe hétéroclite. On retrouve encore des government buildings such as the South• Park, lying to the City's north-east, was dossiers portant sur des ern Block (Langevin Building 1883-893) assumed from the municipality.7 propositions qui n'ont pour la removed land from private ownership plupart pas été réalisées et qui and municipal taxation. The Langevin Todd Report avaient pour but de promouvoir une being but one of a number of new federal image symbolique de l'identité nationale. L'un après Vautre, divers properties, the tax base had not kept Limitations imposed by lack of profes• organismes fédéraux et municipaux pace with demands on the municipal sional staff quickly became apparent. ont tenté, avec des résultats purse. Moreover, new development Vice-regal lobbying of J. Israel Tarte, Min• variables, d'améliorer l'aspect et meant additional municipal outlays for ister of Public Works, by Lord and Lady l'attrait d'Ottawa. Le départ du fire protection, water and sewer provis• Aberdeen to "get a plan" also may have planificateur anglais Thomas Adams ions. Although the Dominion government hastened the decision to obtain expert de la Federal Commission of had begun to pay the City for water sup• advice.8 Frederick G. Todd, noted Mon• Conservation et la mort subséquente ply in 1877, and in 1883 and 1885 had treal landscape architect, was engaged de cet organisme ont représenté, assumed maintenance costs of certain by the OIC to devise a master plan. His vers la fin des années 20, le creux de bridges and roads fronting its property,4 1903 report is the first systematic analy• la vague sur le plan de la recherche by 1897 civic authorities argued these sis of certain existing situations and de stratégies de planification contributions were inadequate. makes specific and staged recommenda• globale. Tout au long de sa carrière, tions for improvements to the Capital Noulan Cauchon, premier directeur The 1899 formation of the Ottawa g area. de la Ottawa Town Planning Improvement Commission (OIC) may be Commission, a cherché à intégrer la viewed as part of a sympathetic federal Walter Van Nus has suggested that archi• notion de planification au response to these concerns, as well as tects of the City Beautiful movement, développement de la ville. Certaines an adroit manoeuvre to avoid its total whose origins are associated with the de ses propositions, qui n'ont pas share of infrastructure costs.5 The Com• obtenu tout le crédit qu'elles 1893 Chicago World's Fair, were preoc• méritaient, offrent beaucoup de mission was authorized to acquire land cupied with three principles of urban aes• similitude avec les travaux de in the Ottawa area to create and maintain thetics: coherence, visual variety and 10 planification entrepris par parks, streets and driveways. Mandated civic grandeur. The "Todd Report" fits MacKenzie King et Jacques Greber to cooperate with the City in producing this prescription in its goal to unify the avant la Deuxième guerre mondiale. physical embellishments befitting a capi• image of Ottawa through a series of L'héritage de Cauchon nous est tal, at first the OIC was governed by four grand parkways, natural settings and parvenu grâce à des projets qui ont unpaid commissioners: three federally open urban vistas, and is one example of été intégrés aux travaux de and one municipally appointed. No pro• the City Beautiful movement's influence planification fédéraux fessional planning staff was contem• on late Victorian planning. Todd noted d'après-guerre. plated. An initial annual budget of Laurier's "Washington of the North" $60,000 was increased by increments remarks, but cautioned as to the differ• until on July 7, 1919 the amount was ences between the two capitals—the boosted to $125,000 annually for the principal one being that Washington had 6 decade to follow. proceeded from a plan. Mindful of the then paramount role of industry and its Laurier was eager that the OIC attend to siting to the Ottawa economy, Todd pro• the west bank of the . This posed a park system hierarchy: Large feature afforded a first impression to Natural Parks, Suburban Parks, Boule• those arriving at the Capital, the railway vards and Parkways, Waterway Parks, yards and station occupying the Canal's City Parks, Squares and Playgrounds. east bank. The site lay cluttered with

41 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

Figure 2: Looking East Along , from From: Ottawa Improvement Commission. The Capital of Canada, Driveway Improvements (Courtesy National Archives of Canada/Cl39364).

He sketched what is today known as On the outskirts of Ottawa and Hull, Todd Todd understood the dynamics of com• Park, and outlined the scenic suggested four typically suburban parks peting economic uses for land and rec• Parkway that now traverses the 88,000 be created for public enjoyment of their ommended that the OIC: acre park. Foreseeing a 1952 population natural open spaces. He believed these of 300,000, he recommended land "bank• parks, linked by landscaped parkways, ... have prepared as soon as possible ing" in advance of need, stating that infra• in time would provide the inner-city amen• a general out-line pian for your park structure could be improved as monies ities the expanding city would require. system and also carefully studied and demand permitted. Implemented to varying degrees, these plans for the suburban and city facilities are all to be found roughly parks.11 His examination of OIC public works at where Todd first proposed. Two cases in Rockliffe Park led him to recommend point: Chaudière Park forms part of the Although not a formal land-use plan, adjacent land acquisitions to greatly ribbon of green along the Ottawa shore• Todd's Report called for the comprehens• increase the park's size. His proposed line; while the Chaudière Parkway ive planning policy vital for its own cliffside Parkway still forms part of that ( Parkway) runs from the implementation. In so doing, it recog• park's road system. west of the city, past Remic Rapids, to nized its limitations as an advisory plan. terminate at the downtown core. Nevertheless, it remains the first planning A History of Commissions

document for the Ottawa area, its stamp struction garnered praise from many "from time to time," through the Minister embedded on the capital's future plan• quarters, the Association of Archi• of Agriculture, though not responsible to ning studies and built forms. tects, and the Royal Architectural Insti• him in any capacity. In return for this tute of Canada criticized the workman• remarkable degree of political indepen• Laurier's influence on Ottawa's appear• ship of ornamental structures erected as dence, its powers were limited to study• ance was not limited to his support for part of Driveway embellishments (e.g., ing, observing and recommending on the OIC. He was involved directly in Figure 1 ). Worse still, engineering meth• issues of concern to itself, as defined by securing construction of the Chateau ods and construction materials of the the then-current "doctrine of usefulness." Laurier hotel. The absence of a major Lady Grey Drive roadbed—a project rec• With Sir Clifford Sifton as Chair came a first-class hostelry, and the resulting per• ommended by Todd—were alleged to be voice with a great deal of "advisory" ception of inadequate accommodation sub-standard.16 capacity. One of the strongest politicians for government officials and visitors, had of his day, and credited as architect of been seen to plague official life for many Referring to the OIC's implementation of Laurier's immigration and western settle• years. The federal government pre• Todd, Ottawa architect Major C. Powell ment policies, Sifton's was a patronage viously had taken over Major's Hill Park Meredith stated in 1910 that: award. A nationalist, he broke with Laur• from the City, and in the early 1900's ier in 1911 over the Reciprocity issue, gave the Canada and Atlantic Railway, ... it was too big apparently for the and worked to elect Borden's Conserva• later merged with the Grand Trunk Rail• Commission to grasp, and it was con• tives. Hence he remained Chair despite way, that portion fronting onto Rideau sequently pigeon-holed.17 the change in government. An individual Street for construction of the hotel. Wide of great personal and political power, criticism followed.12 The City saw itself Coincident with this period of criticism, Sifton accounts in large measure for the as having forfeited a potentially lucrative the Commission's budget was increased Commission's virtually free hand in pro• transaction. Commenting on the hotel in substantially. The architects' attacks, pre• moting its agenda for change during the 1907, Canadian Engineer stated its con• sented in a brief to the newly-elected Bor• 1910's, as it "tried to deal with all the struction was due in large measure to den government, influenced creation of a problems of the new urban-industrial Laurier's untiring zeal to see it built. The Federal Planning Commission (the Holt order."19 Grand Trunk also was building a station Commission) in 1913.18 Before reviewing across the street. The two buildings, Holt, the reforming activities of the fed• He favoured a decentralized organiza• whose design was credited to the New eral Commission of Conservation (COC), tion. Seven committees were empowered York firm of Bradford, Lee and Gilbert, and the typhoid outbreaks of 1911-1912 to meet as required. The Public Health complemented each other and were: also merit brief examinations for a more Committee's Adviser, Dr. Charles complete understanding of the 1913 Hodgetts, had served as Medical Inspec• In keeping with the Parliament build• decision to commission a Federal Plan. tor for the Ontario Board of Health and ings ... The station and hotel ... will all was, according to the Ottawa Free Press, help towards the future realization of Commission of Conservation "the foremost public health authority in "the city beautiful."13 Canada,"20 holding firm beliefs that were The COC was formed following the 1908 reflected in the Commission's 1912 The integrated construction of these facili• North American National Conference on Annual Report: ties greatly enhanced Connaught Conservation hosted in Washington by Square, and is an early example of infor• Theodore Roosevelt. The agenda pos• ... the importance of the town planning mal federal coordination of improved ited an interventionist role for govern• and housing question commands a 14 public facilities. The Chateau Laurier in ment, with the private sector recognizing foremost place, not only is it necessary particular was to exert great influence its responsibilities and accepting greater from the purely health standpoint, but it over King, and to inspire the "Chateau" state controls. The Canadian response is is of economic importance that the 15 style of architecture. one of the more interesting experiments physical standard of our people be of in the history of the Federal apparatus. the highest character.21 Towards a Federal Plan Created February 18, 1909, the Commis• The COC was concerned about the By 1910 the OIC had reached a crisis sion was responsible solely to Parliament urban housing shortages then emerging point. While its park and "Driveway" con• as a whole. Even then, it reported only as a result of rapid immigration, a boom-

49 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

ing economy, and inflated land values, Ottawa. After analyzing the epidemics, two Torontonians and the Mayors of and investigated overseas planning prac• the COC then invited a public health spe• Ottawa and Hull. Its terms of reference tices as potential remedies for emerging cialist from New York City to recommend required it to plan comprehensively the urban social ills. In this way the Commis• ways to avoid repetition of the avoidable future growth of Ottawa, Hull and envi• sion justified inclusion of planning within tragedy. His graphic report virtually rons, with specific attention paid to its mandate. In 1912 Hodgetts organ• accused the responsible authorities of parks, boulevards, public buildings, and ized a national lobby to have the Domin• murder25 Given the combined number transportation ion hire British planner Thomas Adams. of fatalities—-174 dead and 2,365 ill— Regarded as a leading authority of his and the geographically-even affliction The FPC engaged Chicago town planner day, Adams had been well received at a within the City, as the disease was E.H. Bennett, prominent due to his work 1911 planning conference at Philadel- spread through the water-supply system, on the Washington and Chicago plans. A no there can be little doubt federal officials Canadian engineering staff was headed phia His nationality would have been were affected personally. The impact of by A.E.K. Bunnell. E.L. Cousins of an asset. Hodgetts was steeped in the the catastrophe, despite the 1913 intro• was consulting engineer. Noulan British approach which stressed health, duction of chlorinated water, might have Cauchon supervised survey mapping. housing and open space. Adams embod• led federal powers to conclude that the ied a planning philosophy already future of Ottawa, and their own personal The Report's central recommendation was accepted by the Commission before his safety, required a planning effort that creation of a Federal District, to include arrival, as witnessed by its organization superseded the abilities of complacent Hull, Ottawa and environs. Within it, facili• of the first National Planning Conference and procrastinating municipal politicians. ties necessary for a "dignified" and "beauti• in Toronto in May 1914. Earlier outbreaks of the disease had ful" capital would be the fiscal responsibil• Direct intervention by Robert Borden been confined to poorer wards of the ity of the entire country. In proposing a eventually led to Adam's July 1914 City and had been met with indifference national context for responsibility, this plan acceptance of the position of Federal by city fathers. Yet this time, again, built upon a foundation established in the Town Planning Adviser. He is important "despite a proven crisis, reformers met original rationale for the OIC. in legitimating planning in Ottawa, and strong resistance from an orthodox politi• his contribution is examined later in this cal and business community that over Having laid a political framework, Bennett paper. That the COC lobbied diligently two decades had maintained an indiffer• outlined a series of built-form planning rec• for his procurement underscores a fed• ent record on health questions."26 ommendations. Examined today, they pro• eral determination to address issues of fess much of the folly and grandeur of the land use and housing then facing the Finally, Ottawa's pre-war boom coin• full-blown City Beautiful schemes at which Dominion. Borden's support for planning cided with the peak of City Beautiful influ• he excelled. So sweeping was the purview initiatives at this time—as witnessed by ence. Though not widely imported into that bringing the Plan to fruition would have his involvement in securing Adams' ser• Canada, there being few cities of suffi• required infrastructural rebuilding of the vices, and his appointment of the Holt cient wealth to match the grandiosity of centre city. Figure 3 illustrates the scope Commission by Order-in-Council dated the approach, the fashion of doing a and grandeur which so clearly imprint this September 12, 1913—appears strong. A grand plan cannot have been lost on the Plan with City Beautiful credentials. more proactive climate fostered by the Dominion government, as references to COC's investigations also may have the City Beautiful influence on the Cha• Unlike some City Beautiful advocates, spurred the government into a fundamen• teau Laurier Hotel and railway station Bennett also examined urban services, tal planning assessment of the capital. imply. The City Beautiful also would have suggesting ways to achieve greater effi• appealed to a Tory concern at this time ciency. To this end, this plan has also Two outbreaks of typhoid in Ottawa "with the public image implicit in all pub• been labelled an example of the emerg• 27 within an eighteen month period during lic architecture." ing City Efficient movement—character• 1911-1912 also ought be considered as ized by a desire to improve the working furthering creation of the Federal Plan Holt Commission efficiency of the city. Commission (FPC), particularly in light of Hodgett's membership on the 1909 The FPC board, chaired by Herbert Holt, By 1913 urban congestion at grade-level Ontario Commission to investigate water Chairman of the Bank of , com• railway crossings was a serious concern. supply and sewerage disposal at prised six members: two Montrealers, Holt recommended "a complete re-

50 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

Figure 3: Illustration of central plaza. Report of the Federal Plan Commission (Courtesy National Archives ofCanada/Cl39365). A History of Commissions

arrangement" of rail rights-of-way be The Great War, and Federal bailout of the 1914 lecture on the Federal Plan deliv• effected by a single agency, and that the bankrupt railways, consigned the sweep• ered by Bennett, Noulan Cauchon stated: Grand Trunk station become a Union Sta• ing Plan to virtual oblivion. That it was tion linked by a tunnel under Wellington beyond Federal abilities is clear when ... smooth with accepted generalities, Street with lines to the City's west. To fur• the burden created by the 1916 burning [it] gave no inkling that the Commis• ther this rationalization, Holt advised relo• of the of Parliament is sion was seized with the fundamentals cating industries from their many scat• placed in context. The "mere" of... town planning—the ethics of shel- tered sites to four industrial zones: one $12,000,000 required for rebuilding was ter.32 on the east side of town, another at a main public works focus of the federal Chaudière Falls where much activity was treasury for many years. The Holt Plan, The comments, remarkable considering already concentrated, and two in the Hull with its many grand avenues and build• Cauchon's duties as Plan Surveyor, echo area. ings, their turreted Chateau rooflines sug• a growing criticism of monumental plan• gesting the architectural equal to any of ning. In fact, the federal government was The Federal Plan Report also proposed the world's great cities, was the product the first to disregard the Plan's recom• an eight-station street-car subway. Begin• of an expansionary era. It withered under mendations. In constructing the Hunter ning at Sussex and Rideau, tunnels the fiscal stringency imposed by the Building, on O'Connor Street south of Par• would have run westward to , unbroken string of Federal deficits liament Hill, it ignored recommendations thence southerly to Laurier Avenue, with between 1914 to 1924.29 to build westward along Wellington St. westward and southward legs along to Bronson, and down Whether the Plan might have enjoyed The Plan addressed sewage treatment Elgin Street to Laurier Avenue. partial implementation if war had not inter• but its silence about a safe water supply vened, or Tory rule continued, is open to was noted in one 1914 editorial alluding Holt suggested Federal government question. In 1939 C.J. Ketchum, former to the typhoid outbreaks: building proceed in a rational decentral• assistant to Noulan Cauchon (City of ization westward along Wellington Street. Ottawa Planning Director) and later to ... and may we add the hope that Previously, much federal building had Jacques Greber commented: "Without when—in 1934—the visitor to Ottawa occurred along . Some question the recommendations of the has been duly impressed with the dig• other improvements foreseen were a sew• Commission would, in part at least, have nity and importance of Canada's Capi• age treatment plant at Green's Creek been acted upon long before this had tal, that he will be able to obtain a drink (since built), an incinerator fed by a fleet the war not intervened ..." Charles Hope• qo of pure water ... of garbage-hauling streetcars, and a gas• well, Mayor of Ottawa and Commission works near (now demol• member, offered a different perspective: By 1926, Cauchon, then the Town Plan• ished). "We got a beautiful set of plans which ning Institute's guiding light, had come to would have been fine if we had started to believe the Federal Plan a mistake: Beyond the downtown core, the Plan carry them out a hundred years ago. An advised rebuilding central Hull; the lay• ideal plan was made, but an utterly [It] has done us an immense amount of ing out of suburban streets in advance of on harm because it has suggested that impossible one." development; and, coupled with the whole thing is impracticable. A enforced building regulations, the "dis• Van Nus has argued that by the end of plan ... is not imposed upon citizens trict" control of new residential and manu• 1915, critical observers of town planning from without.34 facturing areas. had concluded a choice had to be made between City Beautiful, and suburban In 1916 Thomas Adams, always a strong These recommendations promoted a regulation and planning. The latter was proponent of regulation, had had this to more balanced population distribution, seen as a better way to house the poor. say about Holt: achieved through decentralized employ• After 1910, due to phenomenal urban ment. Reduced congestion, and population increases, and private Had the British method of preparing a improved urban services were seen as capital's inability to satisfy housing town planning scheme been adopted, public health objectives furthering com• demand,31 social reformers came to view the plan and scheme to give it effect patibility between federal, municipal and the housing shortage as the country's would have been prepared simulta• private land uses. greatest urban challenge. Criticizing a neously, but the Federal Commission

52 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

adopted the simpler American method assistant) later worked with Greber at the ... assistance was given in preparing a of preparing a plan and making a gen• National Capital Planning Committee. plan for a housing development but eral report, leaving the detailed merely for the purpose of making one scheme and the financial considéra- A tireless promoter, Adams had object lesson in this kind of develop- oc launched the Civic Improvement League tions for subsequent consideration. in 1916. At its inaugural conference, he Although early 1920's COC publications described himself as a "central bureau In addition to providing a site for the edu• on occasion mention the Federal Plan,36 for information." The League was a cating example, Ottawa-as-location was Adams' lack of opposition to its shelving national lobby group, and at this confer• expedient, close at hand, and provided is apparent. In 1932, following his return ence the Governor-General urged it to easy access from the office. Yet even to England, he allowed that: "[the Plan] promote the values of the Garden City this nearby foray did not go as planned. did not lead immediately to much in the movement. In effect, Adams as a Federal Although the physical site was crafted as way of statutory planning, but it influ• contractor organized pressure on the per Adams' specifications, the quality of enced to a considerable extent the devel• national government for a greater role for housing of the city-sponsored project opment of the Civic Centre and the loca• town planning. drew criticism: tion of Government buildings and semi-public structures."37 However, after As mentioned, housing was a priority for ... it is quite apparent that a mistake this brief entry, Adams promoted his own reformers at this time, and the COC's lob• has been made in building a large 1918 proposal for extending the Govern• bying efforts are to be partially credited number of houses of what is probably ment Centre at Ottawa, failing to note sim• with the striking of an Ontario Housing the least attractive type of house on ilarities between his own and Holt's ear• Committee40 Legislation was enacted to 44 the property. lier proposal. Adams keenly had wanted permit lending $2,000,000 to municipali• a master plan for Ottawa, but one that ties for housing construction. The Domin• These remarks, attributed to Cauchon, embraced a social agenda at variance ion then created a $25,000,000 fund for appear at a time of inflated building mate• with the grandiosity of Bennett's outlook. similar purposes, with Adams directing rial costs, exacerbated by the War, and Perhaps, as a former civil servant, he felt the newly-minted Federal Housing Com• the announcement of the federal housing constrained from openly rebuffing the mission.41 In 1919, the COC's Town Plan• scheme. In 1920 such costs were only attempt at comprehensive planning ning and Conservation of Life reported 183.8% higher than in 1913 and partially for Ottawa commissioned during his ten• that two 40-acre parcels had been explain the shortages and short-cuts that ure there. secured through the Ontario Committee dogged the project.45 for the erection of houses in Ottawa. Shifting planning priorities within the Lindenlea was the last federal planning COC, federal deficits, the dislocation of One of these sites, a 22-acre lot pur• venture in the capital, other than the the post-war years, a change of govern• chased for $66,000, offers the sole con• parks and parkway approach of the OIC, ment, and even the influenza pan• crete instance of Adams' legacy in the until MacKenzie King's 1927 announce• demic38 go far to explain the lack of capital area. He was the architect of ment for redevelopment of Confederation enthusiasm for the Federal Plan at the Lindenlea, Ottawa's only garden suburb. Square and Elgin Boulevard. Shortly after time. However, as an early example of Developed by the Ottawa Housing Com• Adams' Lindenlea involvement, the COC comprehensive planning, it remains "one mission, for whom Adams prepared the was dissolved, the political victim of its of the outstanding state documents of plans, building began in the fall of 1919. lifetime of independent action. Canadian history, and no subsequent A year later sixty houses were ready, 42 capital planner has been able to ignore with contracts placed for fifty more. Adams' personal energy merits credit in The suburb's curving streets and natural assessing the Commission's influence. gradients recall Adams' Letchworth Gar• He alone authored one hundred and After the Great War den City origins. thirty-nine different Commission articles, pamphlets and books on planning during The COC and Thomas Adams had con• Justification for the Lindenlea involve• his Canadian stint. tinued to lobby and organize during the ment was offered by COC Secretary War. Adams' assistant was A.G. Dalzell, James White: Yet Lindenlea aside, his physical contri• who along with C.J. Ketchum (Cauchon's bution to Ottawa's fabric is nonexistent.

53 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

Throughout his years as Town Planning missioners in Ottawa. By 1910 he was a sultant to the City. This reflects both his Adviser, Adams called for the production consulting engineer.47 missionary commitment and indepen• of town plans and the introduction of dent financial situation. He retained his planning acts in municipalities and prov• He produced the FPC's detailed survey unpaid OTPC post until his death in 1935. inces across the country. However, apart mapping, and after the Great War from the landscaping efforts of the OIC, worked on a variety of planning projects, The advantages to Cauchon in so doing by 1923 Ottawa was no closer to "getting the most notable being at Hamilton, lay in the platform the OTPC afforded, a plan" than it had been in 1899, with Ontario. Throughout, he maintained his and the ability to play off his twin roles as improvements to the city's built form Ottawa address. His belief that "Ottawa its director, and his senior positions (Pres• largely the result of a piece-meal, private in fact should be our national school of ident in 1924-25) at the Town Planning sector approach. town planning, a beacon to sociological Institute of Canada (TPIC). Formed in betterment... ,"48 motivates his career, Ottawa in 1919, with support from Adams Adams arrived with great fanfare, depart• and echoes Laurier's 1893 call for the and the COC, the Institute promoted ing quietly in 1923 to work for the capital as a "centre for intellectual devel• urban planning through propaganda, Regional Planning Association at New opment." research, and maintenance of profes• York. Lindenlea remains a desirable resi• sional standards. With the COC's dential community with correspondingly In an effort to achieve partial implementa• demise, the TPIC became the sole upscale property values. It is ironic to tion of the Holt Report, the City had national planning voice, and its Journal a consider that had Adams engaged in the attempted to secure town planning pow• pulpit for Cauchon and friends. It is full of kind of second-order "project" planning ers through private legislation, but had praise for the activities of the OTPC and he decried, his influence on the capital been refused at Queen's Park. Legisla• the valiant efforts of one Mr. Noulan might be more apparent today. tors there deleted a key phrase within Cauchon. Yet Cauchon tried to use this existing legislation, having been per• position to effect, lobbying against fed• Noulan Cauchon: Ottawa Planner suaded that planning commissions eral planning inactivity, while simulta• should be advisory only and not usurp neously advocating greater comprehens• Strong similarities exist between certain the power of municipal councils. The ive planning for Ottawa. For example, in Ottawa schemes of Cauchon's, and cer• 1921 Ottawa Town Planning Commission 1921 the Journal criticized the OIC for tain collaborations of King and Greber. (OTPC) was a municipal response to failing to use the railway grade crossing Greber's introduction to his 1950 Plan for keep planning efforts alive. Ottawa was fund to eliminate dangerous bottlenecks the National Capital acknowledges the first city in the Dominion to establish created by level crossings intersecting Cauchon as "one of Canada's most out• such a body. Cauchon was its first direc• Commission Driveways. As OTPC standing town planners of international tor. While earlier federal initiatives had director, Cauchon lobbied federal and repute," stating that his work "has been sensitized the country and capital to the railway officials for line relocation and most useful in the making of the new necessity of planning, when the impetus grade separations, even producing the master plan, particularly his studies of for reform abated in the early twenties, it required survey mapping. Congestion the railway problem and of the proposed was left to Cauchon to almost single- was worst along the C.N.R. (Grand new bridge over the Rideau Canal."46 handedly preach the "gospel" of Trunk) line which bisected north-south planning's reform potential. streets such as Elgin, Bank and Bronson. As an early Canadian planner, Cauchon Here Cauchon enjoyed success, as the (1872-1935) was somewhat unique in The OTPC was created under the Chairman of the C.N.R. was sympathetic being native-born. Many were American Ontario Town Planning and Development to his position. In 1927 Ottawa voters or British, attracted by commissions and Act of 1918. Cauchon understood the lim• were asked to approve municipal deben• tures of $350,000 to construct subways returning home when these dried up. The ited scope of this legislation. An annual 50 son of Edouard Cauchon, first Speaker of budget of $10,000 also ensured the under this line. the Federal Parliament and later OTPC would exercise a largely advisory Manitoba's first Lieutenant-Governor, role. Cauchon, commenting on the pre• Cauchon was a prolific writer, as a Cauchon followed a career with the carious position of his Commission vis-a• review of the Journal or Canadian Engi• C.P.R., and in 1908 became Assistant vis the Ottawa Board of Control said: neer reveals. His articles have a religious Engineer with the Board of Railway Com• "Safety lies in convincing them." He has zeal. He would have needed faith to sol• been called the honourary planning con• dier through this bleak era for planning.

54 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

Former Ottawa Mayor Hopewell had have devastated much of Francophone The above works notwithstanding, stated, with reference to the prevailing , but Cauchon appealed to Noulan Cauchon perhaps is best known political climate, that he could not under• property-owners to band together for a for his 1922 "Cauchon Report." This Plan stand how Cauchon sustained enthusi• local improvement by-law to "reap the comprised his studies of the capital asm,51 while Hamnett Hill, former MP.P. benefits of the improvements in traffic beginning in 1907. Many of its ideas also for Ottawa said: "Noulan Cauchon and I conditions and enhanced values which are found in Todd and Holt—the parkway are fast becoming the two village bores would follow," stating that "the new diago• belts and Gatineau Park are examples. of Ottawa. I regularly inflict upon you nal ... disturbs few houses of any value Like Holt, Cauchon planned for Hull, a tales of Ottawa's past and Noulan and will remove many undesirable fire- city he believed had "not profited by any Cauchon is equally insistent with visions trap structures ... . This marks a concessions to its adornment on the part of the future."52 change from his earlier criticism of Holt's of the Dominion Government."58 Certain lack of housing policy. In his opposition ideas, however, were unique to this Plan. His proselytizing was tempered by prag• to sub-standard accommodation he It foresaw the future role of the car, and matism. He was proud of "corner- failed to consider the cold comfort such recommended construction of high• roundings" accomplished by his Commis• a scheme would afford displaced resi• speed limited-access highways. These sion—the widening of dangerous dents in the absence of alternative Interceptors utilized abandoned railway intersections created by incongruencies accommodations. The TPIC's Journal lines, and incorporated streetcars run• at the adjoinments of neighbouring grid noted his frustration when later that year ning along median strips. The patterns. The OTPC introduced streetcar the City decided to build the Cham• Queensway, built upon the Grand Trunk passenger "safety islands" on several pagne Baths directly in the diagonal's Railway right-of-way, manifests this sug• downtown streets, and negotiated the proposed alignment. gestion. pedestrian underpass beneath the now- razed at the corner of Sus• One of Cauchon's more grandiose Cauchon was bolder in recommending sex and Rideau. Cauchon believed these schemes involved creation of a Parkway railway and industrial relocations than "city efficient" activities educated the along the shore of the Ottawa River, Holt. Union Station was to be moved public to the merits of town planning. beneath . Vimy Way would south to Billings Bridge, the yards to Indeed, he almost convinced City Coun• have joined a new bridge across the . Greber echoed these rec• cil to implement comprehensive zoning. Ottawa, running northward from the base ommendations twenty-five years later In 1923 the OTPC was authorized to pro• of , west of Parliament Hill. and both facilities today are roughly duce a model zoning by-law for the That this location was through the steep where Cauchon first proposed. Sandy Hill neighbourhood: the Ontario rock-face of the cliff did not deter Municipal Act having been amended in Cauchon, who proposed the resultant The Report exhibits a degree of planning 1921 and 1922, following pressure from sides of the matching cuts be sculpted comprehensivity not seen earlier in the real-estate lobby, to permit residen• to resemble the Sphinx.56 This example Ottawa. Cauchon's realpolitik model for a tial zoning.53 However, land-use con• of twenties' Egyptomania may have led Federal District is the document's most cerns were felt eventually to be ade• Ottawa Controller C.J. Tulley to remark: compelling suggestion. A refinement of quately addressed by restrictive area "Town Planning was a form of education the concept informs the present National by-laws, and Cauchon's detailed work in beauty, it was a kind of municipal Capital Commission's interactions with was pigeon-holed. poetry."57 area municipalities. He proposed a Fed• eral District "on both sides of the Ottawa While at the OTPC Cauchon continued to Vimy Way was to bridge the Canal cut River, so far as the physical features and produce model planning proposals. As north of Wellington St., and find its public services are concerned."59 This early as 1914 he had sketched a triangu• eastern termination at Courcelette plan's "new idea" lay in its recognition of lar open-space plaza at Connaught Place—a traffic circle, and centrepiece the need to preserve municipal jurisdic• Square 54 In 1919 he refined the Federal of Cauchon's ambitious proposal for tions. Plan's railway tunnel scheme beneath Major's Hill Park. The 1992 Peacekeep• Wellington Street. Three years later, ing Monument within the traffic circle in Though it was perhaps naive of Cauchon through the OTPC, he proposed a broad front of the National Gallery gives form to to have assumed municipalities would diagonal to link the east end of York St. this long-forgotten proposal. voluntarily transfer certain powers to a with the St. Patrick St. Bridge. This would Federal District, the ongoing dialogue he

55 Urban History Review/Revue d'histoire urbaine Vol XXI, No. I (October, 1992) A History of Commissions

envisioned between the tiers of agencies His 1928 remarks show a concern for The owners of the Russell sought to that govern the capital area has pro• Capital planning: rebuild on the same site, located within duced such diverse results as superhigh• the future Place. King intervened, mar• way and bridge construction, pedestrian ... I believe that with Ottawa's natural shalling the FDC's capital funding studies, design controls, architectural and picturesque setting, given stately through the Commons. In April 1928 half competitions and interprovincial transit proportions and a little careful plan• of this fund's capital was used to expro• transfer agreements. ning, we can have the most beautiful priate the Russell site.68 At this time, capital in the world 63 Cauchon submitted a finished proposal Greber's 1950 Plan for the National Capi• for Confederation Place signed June 23 tal allowed that: 1925 marked a return to balanced Fed• of this year. His scheme would have eral budgets. The Dominion Diamond been under development at exactly the The Cauchon report embodies much Jubilee was on the horizon. Coincident time of the expropriation. in the way of recommendations which with this celebration, in 1927 the OIC are fundamental to the basic consider• was reorganized and renamed the Fed• The Depression, and the R.B. Bennett ation of planning of the Capital Area eral District Commission (FDC). Though administration of 1930-35, slowed prog• and which to some extent, have fallen still a landscaping agency, the FDC's ress on the Place. Only with King's 1935 within the purview of the present report. increased powers now extended to the re-election and his engagement of Gre- side of the Ottawa River. ber in 1936, was the project readied for While only a period of some seven the 1939 Royal Visit. years between the dates of the Holt The Commission was granted $250,000 Commission and the Cauchon reports, annually, for a sixteen year period. This After 1928 the western portion of the it is a matter of interest to query just to was reduced to $200,000 in 1928 follow• future Place had been planted in grass, what degree and in what particulars ing creation of a $3,000,000 capital and awaiting funds to permit completion, and the transition of factors affecting urban reserve fund. Credit for securing this then the political will to proceed that King conditions within that period had bear• endowment is given to , would again provide after 1935. Indeed, ing upon the obviously differing prominent Liberal businessman, confi• the old post office, which sat in the mid• approaches to the solutions recom• dant of King, and first FDC Chair.64 Frus• dle of the site, was not demolished until mended.60 trated with the slow pace of capital its current replacement on the north-west works, Ahearn personally funded con• corner of Sparks and Elgin opened in Confederation Place struction of the Ontario approaches to 1938. the Champlain Bridge, and a portion of MacKenzie King's writings appear in the the actual bridge. These actions may King had wished the Place constructed TPIC Journalfor the first time February, have nudged the government into accel• as a circle, like Piccadilly or Oxford Cir• 1927. "Garden City Movement,"61 from erating the pace, with the creation of the cuses in London. The difficulty lay in the his book Industry and Humanity, show• fund partially the result of his initiative.65 triangular shape of the parcel, and its cases King's support for this suburban asymmetrical placement vis-a-vis Parlia• approach, and town planning principles The 1928 Russell Hotel fire is given ment Hill. Like Cauchon, King wished the in general. greater prominence in official explana• War Memorial located at Confederation tions for this fund's creation. The federal Place, but directly in the centre of the cir• King's archival papers pinpoint his government and City had begun work on cle.69 The relationship to Parliament Hill awareness of town planning and its aims. Confederation Place and Elgin Boulevard meant that if the Memorial were to be A file titled "Town Planning" contains a as a joint-venture Diamond Jubilee com• viewed from the Hill its formal positioning profusely annotated copy of "The Gar• memorative project.66 The City's share of within the Place would be lost. Similarly, den Cities of England" by F.C. Howe, as $1,000,000 was committed to building the processional access from the Place well as an application form and letter the Boulevard. The Dominion directed to the Hill would not be on a formal axis, from planner Raymond Unwin, in $2,000,000 to land acquisitions and con• but at the edge of an off-balanced trian• response to King's enquiry about attend• struction of the Place. Work was to be gle. ing the 1913 Summer School of Planning, phased in over a seven-year period, as Hampstead Garden Suburb.62 finances permitted.67 As stated, in 1928 Cauchon produced a comprehensive scheme incorporating a

56 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

Figure 4: Ottawa Town Planning Commission, 1928. National Map Collection, PAC (Courtesy National Archives of Canada/F/440/OTTA WA/1928). widened Elgin Street (Processional Way), new Commission (the FDC) may be in has been worth all his fee for this one and transforming Connaught Place and great measure due to his persistent suggestion in the placing of the Monu• 70 70 ment down Elgin St 74 the approaches to Parliament Hill. Of efforts to get something done ..." significance is his proposal for a triangu• lar-shaped Confederation Place (Figure "Federal authorities" in 1928 may be Both Cauchon's and Greber's proposals 4), anchored at its north end by a taken to mean King himself. His diaries are reproduced for comparison. National War Memorial oriented to the evince a wish to make an imprint on the Cauchon's plan clearly delineates a Processional Way. He anticipated cost- Capital's urban fabric, and it is not far• sightline from the War Memorial down the sharing between federal, municipal and fetched to suggest his eventual ability to centre of Elgin Street. Greber's appears private interests, in keeping with the mon• mastermind all credit to himself. King to be a refinement of Cauchon's earlier umental nature of the venture. Cauchon's chose Greber, who produced the official concept. One important difference is that claim that this scheme was "substantially plan for the War Memorial's siting after King received the prestige obtained from as recommended since 1911 ,71 is signifi- Cauchon's demise in 1935. During his association with the world-renowned Gre• cant in light of the following. later years, the Tory Cauchon had been ber. an irritant, constantly chipping at Federal When Cauchon/OTPC released this 1928 inactivity from the sidelines of his munici• This is not to minimize King's role in initi• plan, the City already had committed to pal sinecure. ating a planning process for the Capital the joint agreement to widen Elgin Street. area, but to situate his actions within a The plan was well received, and City and In 1937 Greber finalized plans for Con• broader context of practice. That he was FDC officials alike sought a conference federation Place and the War Memorial. personally interested in planning is clear, to discuss Cauchon's proposal.72 It is He had favoured Major's Hill Park for the but he was rooted in a matrix of earlier inconceivable King, or later Greber, monument, but was overruled by King. planning theories and practices which remained unaware of this City-sponsored The politician's diaries record his some investigations promoting King as plan. Why Federal authorities did not vali• thoughts on Greber's final proposal: "auteur" have left unexamined. date Cauchon remains a question for more detailed investigation. The Cana• It was a return to the original idea of Though Cauchon was not recognized for dian Engineer had praised Cauchon for the Monument on Connaught Place— his contribution to the Place, his influ• his untiring efforts to unite all levels of he had found the space could be ence is real. If Thomas Adams (or E.H. government in a planning process, com• made large enough by a "V" develop• Bennett) left little physical imprint on menting that: "the appointment of this ment, instead of a circle. ... Greber Ottawa, Cauchon's proposals achieved

51 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

58 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

greater success. The reasons for this demonstrate that very property. Com• 1. National Capital Commission Planning Branch. A may be ironic, lying in the differences of plete within themselves, they sometimes Capital in the Making: Reflections of the Past, Visions of the Future, Queen's Printer, Ottawa, approach between the British Adams are out of context or even hostile to their 1987. and the Canadian Cauchon. The concep• environments. The "diagonal" boulevard tual sophistication of Adams' British bisecting Lowertown Ottawa is a prime 2. Ketchum, Carleton J. Federal District Capital, approach to regional planning appears illustration. An irony lies in that although Ottawa, 1939. to have fallen on largely infertile Cana• his approach is often "bite-sized," his fun• 3. Matthews, Geoffrey T. Historical Atlas of Canada, dian ground. As Lemon argues in a sim• damental analysis as expressed through Vol III, U. of T. Press, Toronto, 1990, Plate 56. ilar history of early 20th century Toronto: certain theories, and the 1922 Report, 4. Federal District Commission. Brief Submitted by shows a more complete planning aware• the Federal District Commission to The Joint ... functional management solutions ness than any one scheme might con• Committee of the Senate and the House of Com• were to rule—the norm was ... not vey. A good example is his Interceptor, mons, Ottawa, March 1956. "ideal principles" since Toronto was occupying the route of the modern-day 5. Ketchum. 1939, p.19. not "aiming at aesthetic pre-emi• Queensway. This was a concrete pro• nence." Toronto's political culture was posal, easy to grasp, yet predicated on 6. Eggleston, Wilfred. The Queen's Choice, National Capital Commission, Queen's Printer, one of making do, of managing the correct analysis of the automobile's com• Ottawa, 1961; See also: Ketchum. 1939. mundane. By all means it had to avoid ing role. Here theory and plan converged. "unnecessary extravagance" in politics 7. National Capital Commission Planning Branch. 1987. and on the landscape.75 Further research might examine Cauchon's interpersonal skills as partial 8. Eggleston. 1961. Though Cauchon championed com• explanation for his relative obscurity. 9. Todd, Frederick G. Report of Frederick G. Todd, prehensive planning, and his theory of Nonetheless, he remains part of the slim Esq., Landscape Architect, Montreal, to the hexagonal planning won international connection that sustained the planning Ottawa Improvement Commission, Montreal, acclaim, he also produced volumes of ideals represented in the pre-1914 years August 28, 1903. specific proposals. Few were realized, by the Holt Report, and the will, as found 10. Van Nus, Walter. "The Fate of the City Beautiful but they were more attuned to the "make- in the personage of MacKenzie King, to Thought in Canada, 1893-1930", The Canadian do" attitudes of the day that grasped con• implement the post W.W.II Greber Plan. City, Essays in Urban History, Stelter, G.A. and crete proposals more readily than A.F. Artibise (eds). McLelland and Stewart, regional planning theories. The 1928 King viewed Laurier as his mentor, believ• Toronto, 1977. study for Confederation Place is a clear ing it his mission to fulfil the latter's 11. Todd. 1903. example of a specific Cauchon proposal "Washington of the North" vision. Laurier 12. Eggleston. 1961. that had wide influence and, I would initiated planning efforts at Ottawa, and argue, ultimate implementation. fostered a broader sense of how the capi• 13. CE, Vol.14, 1907, pp.360-61. tal might take shape. However, other 14. O'Malley, Michael. "The Most Beautiful City in the Adams and Cauchon were both prolific, timely events and committed individuals World", Canadian Heritage, Ottawa, February but the latter's volume of specific were responsible, and merit credit, for 1986. schemes, coupled with his long stint at keeping that dream alive between 15. Kalman, Harold. The Railway Hotels and the the helm of the OTPC and TPIC, allowed Laurier's 1893 speech and King's even• Development of the Chateau Style in Canada, for a greater penetration of his ideas into tual resolve to make it a reality. Maltwood Museum, Victoria, 1968. the mentality of the Canadian political 16. Eggleston. 1961. establishment. This may explain Greber's Endnotes complimentary remarks in his 1950 Plan. 17. Ibid. p. 165. Though both Cauchon's and Adams' JTPIC - Journal of Town Planning in Canada 18. Rowat, Donald C "Ottawa", The Government of assistants worked for Greber, and might CE - Canadian Engineer Federal Capitals, Rowat, Donald C (éd.), U. of T. be expected to have advanced their Press, Toronto, 1973, p.319. See also, Eggleston. mentors' reputations, Adams' work is not TPCL-Town Planning and Conservation of Life 1961. mentioned. PAC - Public Archives of Canada 19. Rutherford, Paul. "Tomorrow's Metropolis", The Canadian City, Essays in Urban History, Stelter, COC - Commission of Conservation Cauchon railed against "piece-meal" G.A. and A.F. Artibise (eds.), Macmillan of Can• planning, though many of his proposals ada, Toronto, 1966.

59 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992) A History of Commissions

20. Morgan, H.J. (éd.). The Canadian Men and 36. COC, "The Future of Ottawa", TPCL, Vol. 6, No. 55. CE, Vol. 42 (June, 1922), Toronto, p.613. Women of the Time, William Briggs, Toronto, 2, (April-June, 1920), Ottawa, 1920, p.32. 1912. 56. "Ottawa Memorial Drive", CE, Vol. 48 (February 37. Adams, Thomas. Recent Advances in Town Plan• 10, 1925), Toronto, p.215. 21. COC. "Town Planning and Housing", Third ning, J. and A. Churchill Ltd., London, 1932, pp. Annual Report of the Commission of Conserva• 155-56. 57. JTPIC, Vol. IV, No.3 (June 1925). tion, Montreal, 1912, p 5. 38. TPCL, Vol. 6, No. 3 (July-September 1920). 58. Municipal Review of Canada, Vol. 23, No. 5, 22. Rutherford. 1966. 1927, pp. 194-96. 39. Eggleston. 1961, p. 168. 23. Hall, D.J. Clifford Sifton, Vol.2, UBC Press, Van• 59. Cauchon, Noulan. "Planning the Canadian Capi• couver, 1985, p. 257. 40. COC. TPCL, Vol. 4, No. 4, (October, 1918), tal", Municipal Review of Canada, May, 1926. Ottawa. 24. PAC. COC. Report on the Epidemic of Typhoid 60. Greber, Jacques. Plan for the National Capital, Fever Occurring in the City of Ottawa, January 41. Van Nus. 1977, p. 375. King's Printer, 1950, p.142. 1st to March 19th, 1911, Ottawa, 1911. 42. Parry, B. Evan. "Ottawa Garden Suburb", TPCL, 61. JTPIC, Vol. VI, No, 1, (February 1927). 25. PAC. Camac, Dr. C. The Epidemics of Typhoid Vol. 6, No. 3, (July-September, 1920),p. 68. 62. PAC. King Papers, MG26 J13, Memoranda and Fever in the City of Ottawa, COC, Ottawa, Octo• 43. JTPIC, Vol. 1, No. 2 (February, 1921), p. 3. Notes, No. 229. ber 30, 1912. 44. JTPIC Vol. 1, No. 3, (April, 1921), p. 9. 63. Hansard, April 24, 1928, p. 2321. 26. Lloyd, Shiela, "The Ottawa Typhoid Epidemics of 1911 and 1912", Urban History Review, Vol. VIII, 45. JTPIC Vol. I, No. 9, (April, 1922), p. 48. 64. Ketchum. 1939, p.20. No,1, June, 1979. 46. National Film Board of Canada. Planning 65. Haig, Robert. Ottawa, City of the Big Ears, Haig 27. Archibald, Margaret. By Federal Design: The Canada's National Capital, Federal District Com• and Haig Publications, Ottawa, 1970, p. 190. Chief Architect's Branch of the Department of mission, Ottawa, November 1948, p. 17. Public Works 1881-1914, Ministry of Supply and 66. Hansard, p.2319. Services, Ottawa, 1983, p.36. 47. Coutts, Sarah. Science and Sentiment: The Plan• ning Career of Noulan Cauchon, unpublished 67. JTPIC, Vol. VI, No.6 (December 1927), p.210. 28. Federal Plan Commission of Ottawa and Hull. research paper, Ottawa, 1982, p. 20. Report of the Federal Plan Commission on a Gen• 68. Hansard, p.2321. eral Plan for the Cities of Ottawa and Hull, 48. PAC. Cauchon Papers, Vol. 3, Scrapbook 1, 69. Eggleston. 1961, p,174. Ottawa, 1915. 1913-1919, "Ottawa should be National School of Town Planning", Ottawa Citizen, March 13, 1915. 70. "Improvement of Central Area, Ottawa". CE, Vol. 29. Eggleston. 1961. pp. 169-173. 55 (July 17, 1928), pp. 142-44. 49. JTPIC Vol. I, No. 4 and 5 (Summer issue, 1921). 30. JTPIC, Vol. IV, No.3, (June 1925). p. 11. 71. Ibid. p. 142. 50. JTPIC Vol. V, No. 6 (December, 1926). 31. Van Nus. 1977. 72. CE, Vol. 55, July 17, 1928, pp. 142-44. 51. JTPIC Vol. IV, No.3. 32. PAC. Cauchon Papers, MG30 C105, Vol. 2, File: 73. CE, Vol. 52, April 26, 1927, p.475-6. Clippings 1911-1915, Ottawa Citizen, April 25, 52. JTPIC Vol. Ill, No.2 (March 1924), p.2. 1914. 74. PAC. "King Diary", Thursday, August 12, 1937, 53. Hulchanski, J.D. The Origins of Urban Land Use pp. 750-51, King Papers. 33. "Federal City Planning Commission", CE, Vol 26, Planning in Ontario 1900-1946, unpublished Jan. 15, 1914, Ph.D. thesis, U.ofT., 1981. 75. Lemon, James. "Plans for Early 20th-century Toronto; Lost in Management", Urban History 54. Cauchon, Noulan. "Town Planning with Special 34. JTPIC, Vol. V, No. 5 (October, 1926), p. 8. Review, Vol.XVIII, No.1, June 1989. Reference to Ottawa", CE, Vol. 37 (November 13, 35. COC, Conservation of Life, Vol. II, No. 4, Ottawa, 1919), Toronto, pp. 455-457. July-Sept., 1916.

60 Urban History Review/Revue d'histoire urbaine Vol XXI, No. 1 (October, 1992)