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Winnipeg's Civil Political History and the Logic of Structural Urban Reform: a Review Article P Document generated on 09/27/2021 9:22 a.m. Urban History Review Revue d'histoire urbaine Winnipeg's Civil Political History and the Logic of Structural Urban Reform: A Review Article P. H. Wichern Number 1-78, June 1978 URI: https://id.erudit.org/iderudit/1019444ar DOI: https://doi.org/10.7202/1019444ar See table of contents Publisher(s) Urban History Review / Revue d'histoire urbaine ISSN 0703-0428 (print) 1918-5138 (digital) Explore this journal Cite this review Wichern, P. H. (1978). Review of [Winnipeg's Civil Political History and the Logic of Structural Urban Reform: A Review Article]. Urban History Review / Revue d'histoire urbaine, (1-78), 111–121. https://doi.org/10.7202/1019444ar All Rights Reserved © Urban History Review / Revue d'histoire urbaine, 1978 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/ Ill BOOK REVIEWS •k ic ic ic "k ic "k WINNIPEG1S CIVIC POLITICAL HISTORY AND THE LOGIC OF STRUCTURAL URBAN REFORM: A REVIEW ARTICLE The fascinating history of Winnipeg's development as a Canadian metropolis is only beginning to attract the public and scholarly attention which it so obviously deserves- In terms of official public concern, Winnipeg is still at a nascent stage, having no formal City Archives in spite of the $750,000 spent on the City's Centennial activities in 1974, and a new Centennial Library subsequently built downtown. Civic records remain unsorted and uncatalogued somewhere in the City Hall basement— with no personnel assigned to archival work. Fortunately, this state of affairs has not impeded the development of scholarship, collections of primary materials, and publications devoted to the description and evaluation of Winnipeg's social and political history. A basic survey of sources and materials on Winnipeg government and politics indicated a broad range of primary materials and secondary studies.1 In recent years a number of notable publications have appeared, of which the most numerous are the articles and books by Alan Artibise. His seminal study of the 1874-1914 period appeared the same year that Lloyd Stinson revived a tradition of autobiographical descriptions of Winnipeg civic politics.2 That year also saw the publication of an excellent collection of civic maps detailing the spatial aspects of Winnipeg's development and social class segregation. 1976 was the year that the two central foci of this review were published, along with my own P.H. Wichern, "Toward a History of Local Politics and Public Services in the Winnipeg Area: Research Notes and Sources," in P.H. Wichern, ed., Studies in Winnipeg Politics: A Collection of Research Papers on Various Aspects of Local Politics in the Winnipeg Area Prior to Unicity, Background Papers on Winnipeg Government and Politics, Volume II (Winnipeg: Department of Urban Affairs, Province of Manitoba, 1976). 2 Alan F.J. Artibise, Winnipeg: A Social History of Urban Growth, 1874-1914 (Montreal: McGill-Queen's University Press, 1975); L. Stinson, Political Warriors: Recollections of a Social Democrat (Winnipeg: Queenston House, 1975). 3 Alan F.J. Artibise and E.H. Dahl, Winnipeg in Maps/Winnipeg par les cartes, 1816-1972 (Ottawa: Public Archives of Canada, 1975). 4 Report and Recommendations, Committee of Review, City of Winnipeg Act (Winnipeg: Department of Urban Affairs, Province of Manitoba, 1976) [sometimes referred to as the "Taraska Report11]; J.E. Rea,"Parties and Power: An Analysis of Winnipeg City Council, 1919-1975," Appendix IV, City of Winnipeg Act Report. The latter was published as a separate volume, and is sometimes referred to as the "Rea Report." 112 collection of Studies in Winnipeg Politics. Finally, in 1977 Artibise's Winnipeg: An Illustrated History was released. providing for the first time a comprehensive survey of Winnipeg's civic history, it provides an outstanding basic compendium of facts, illustrations, and references against which all future efforts must be measured. Over the same time period, there was also the emergence of literature detailing the evolution of Winnipeg area local governments,6 the creation of Winnipeg's new amalgamated City, "Unicity,"? an evaluation of the Winnipeg experiment in urban structural reform,8 as well as initial analyses of the property industry connections of Winnipeg City Councillors.9 Winnipeg is known as the city of the 1919 General Strike, and of subsequent class and party politics at the civic level.^ However, Artibise demonstrates a second major theme: Winnipeg's boosterism and the civic hegemony by a commercial (downtown business) elite who allied themselves with residential property owners (and real estate interests) by forming "Citizens11 electoral organizations as early as 1884. H It is Alan F.J. Artibise, Winnipeg: An Illustrated History, History of Canadian Cities, Volume I (Toronto: James Lorimer and National Museum of Man, 1977). 6 P.H. Wichern, ed. , The Development of Urban Government in the Winnipeg Area: A Collection of Materials from Government Reports and Student Research Papers, Background Papers on Winnipeg Government and Politics, Volume I (Winnipeg: Department of Urban Affairs, Province of Manitoba, 1973). T. Axworthy, The Politics of Innovation (Winnipeg: Institute of Urban Studies, University of Winnipeg, 1972). Another study is forthcoming. It is M. Brownstone, T. Plunkett, L. Feldman, and D. Hefferon, Politics and the Process of Reform: The Winnipeg Experience, Lane Studies in Regional Government (Berkeley: University of California Press). o L. Axworthy and J. Cassidy, Unicity: The Transition (Winnipeg: Institute of Urban Studies, University of Winnipeg, 1974); Wichern, The Development of Urban Government. For an overview of urban structural reform thinking and reorganizations see T. Plunkett, "Structural Reform of Local Government in Canada," Public Administration Review, Vol. 33, No. 1 (January-February, 1973), pp. 40-51. 9 J. Lorimer, A Citizen's Guide to City Politics (Toronto: James, Lewis, and Samuel, 1972). Rea, "Parties and Power." Artibise, Winnipeg: A Social History, pp. 46-51; Artibise, Winnipeg: An Illustrated History, p. 81 and passim. 113 the major contention of this article that the latter theme (community power structure politics) and not the former themes (class and civic party politics catalyzed by the Winnipeg General Strike) is at the core of past and present Winnipeg civic politics, and that this nucleus must be taken into account in any attempts to reform Winnipeg1s politics— whether by structure, as proposed by the Taraska Committee, or by practical politics, as proposed by Lorimer and others. Winnipeg has long been a center of urban structural reform—perhaps being the foremost North American metropolis in this regard. Early in the century, Winnipeg followed Toronto's lead in adopting the Board of Control system (it was dropped in 1919—fifty years before Toronto area disbandings of the system). At the same time other major urban reforms were undertaken, such as the municipalization of (some) utilities, the expansion of city works operations, and attempts at city planning, parks, and provisions for recreation.12 Winnipeg was also the center of (volunteer) urban social reform, and was given a proportional representation system in 1920 which guaranteed "Citizens11 control while spawning a continuing tradition of elected communist office holders on City Council and its School Board. -^ While Winnipeg's Metro government was based on the successful experience of Toronto's earlier structural reform, it innovated in having the electoral districts cut across municipal boundaries. The New Democratic Party continued this tradition of urban structural reform by amalgamating the twelve area municipalities and the Metropolitan Corporation into one City and one taxing authority, creating Canada's only Provincial Department of Urban Affairs, and by other innovative provisions written into the 1971 City of Winnipeg Act.-*-^ Winnipeg Artibise, Winnipeg: A Social History, documents these developments. On the broader themes and development of the urban reform movement consult P. Rutherford, éd., Saving the Canadian City: The First Phase, 1880-1920 (Toronto: University of Toronto Press, 1974). See also the section on urban reform in Gilbert A. Stelter and Alan F.J. Artibise, eds., The Canadian City: Essays in Urban History (Toronto: McClelland and Stewart, 1977). 13 For references, consult Wichern, "Toward a History of Local Politics," p. 24. An excellent article on the current incumbent of this role position is T. Allen, "Once a 'black eye to Winnipeg,' Zuken has become respectable, a local curiosity piece," Winnipeg Free Press, March 30, 1976. 14 Wichern, The Development of Urban Government, p. 41. For details, see Dennis Heffron, "Notes on Bill 36, The City of Winnipeg Act," in L. Feldman and M. Goldrick, eds., Politics and Government of Urban Canada: Selected Readings, 3rd edition (Toronto: Methuen, 1976). 114 is therefore cited as a leading example of the structural reform of Canadian urban governments.-*-® Both the Toronto and Winnipeg reforms were under review in 1975 and 1976. The well-funded Toronto inquiry was
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