Document generated on 09/29/2021 7:51 p.m.

Ontario History

Governing : Bringing Back the City That Worked by Alan Redway John C. Carter

Volume 107, Number 2, Fall 2015

URI: https://id.erudit.org/iderudit/1050639ar DOI: https://doi.org/10.7202/1050639ar

See table of contents

Publisher(s) The Ontario Historical Society

ISSN 0030-2953 (print) 2371-4654 (digital)

Explore this journal

Cite this review Carter, J. C. (2015). Review of [Governing Toronto: Bringing Back the City That Worked by Alan Redway]. Ontario History, 107(2), 265–268. https://doi.org/10.7202/1050639ar

Copyright © The Ontario Historical Society, 2015 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/ book reviews 265

Free Blacks in Delaware had long been using sides of the border. the courts to address grievances and conduct The interplay between the essays in the business, but by the mid nineteenth century, first part of the collection and those in the many were becoming increasingly frustrated second and third parts show some discon- with lack of opportunity, justice and unre- nect between academia and local, avocation- lenting prejudice. At first hesitant to aban- al researchers and writers. But the strength of don their homeland, some free black families the second and third sets of essays highlight moved to Pennsylvania to access educational the history of individuals and settlements, and economic opportunities denied them in bringing forth more historical data and add- Delaware. Moving to a free state allowed them ing more depth and nuance to the region’s to participate more openly in anti-slavery and history, as well as adding dimensions beyond Underground Railroad activities. When the local and national borders. The examination Fugitive Slave Act was passed, some families, of African-Canadian and African-Ameri- like the Shadds, felt compelled to move to can kinship, social, and economic networks Canada and supported other emigres to join deeply informed the nature of abolition in them. Unlike the Shadds, the Andersons sup- Canada, America, and across the Atlantic. ported the Colonization Movement, believ- These essays also make it clear that the- in ing there was only one place where Blacks terpretation of the Black experience in this could feel secure and totally free, and moved region has been influenced by a web of cul- to Liberia. The last essay—and second one tural, historical, and social dynamics and by Marie Carter—in Part Three brings the points of view, leading to multiple outcomes. reader back to the Dawn Settlement in the The “Promised Land” was a complex place. Chatham-Kent region, mapping out the dis- This history, the survival strategies and tinct places that scholars and the public have strategies for freedom practiced and experi- long conflated. For anyone researching the enced by people of colour within the highly history in this region, this essay is well worth oppressive and segregated eras of slavery and reading. The volume ends with a fine epi- beyond, should be fully integrated into na- logue by historian Afua Cooper, whose call tional histories. for action should motivate many professional scholars and local researchers to continue Kate Clifford Larson, uncovering this important history, to replace Winchester, Massachusetts, the “feel good” history of the Underground Author, Bound For the Promised Land: Har- Railroad with the reality of Black life on both riet Tubman, Portrait of an American Hero Governing Toronto Bringing Back the City That Worked By Alan Redway Toronto: the author (using Friesen Press, Victoria), 2014. 305 pages. $47.36 hardcover. ISBN 978-1-46025-199-7. $31.53 paperback. ISBN 978-1-46025-200- 0. $3.79 eBook. ISBN 978-1-46025-201-7. www.friesenpress.com) hen first reading the sub-title of Alan gamation of the Megacity. Such is not the WRedway’s book, one might think that case. For twelve of the fourteen chapters, the focus of this work would be on de-amal- Redway masterfully weaves personal experi-

OH autumn 2015.indd 265 08/09/2015 10:22:02 PM 266 ONTARIO HISTORY

ence, interviews, newspaper articles and a wealth of carefully unearthed research data and fascinating archival material, to guide us through the creation and development of Metro Toronto, leading up to the eventual amalgamated city. Four years of work on this project has produced a superb product. The author, who is a retired lawyer, is well qualified to write this book. Redway was a member of the East York council from 1972- 82, that borough’s mayor from 1977-82 (dur- ing this period also a metro councillor and a member of its executive committee), then for almost ten years an MP, who laterally served as Minister of State (Housing) in the Mul- roney federal government. For both non-To- ronto and Toronto residents, Redway’s book provides an invaluable background to, and a history of, how the current amalgamated City of Toronto came to be. In addition, the author uses his intimate knowledge of municipal politics to explain how and why this happened and, importantly, provides Toronto area changed dramatically as pros- personal insight about manoeuvrings which perity returned. The increasing population resulted in amalgamation. created housing, transportation, water sup- Redway’s chronology of municipal ply and sewage treatment problems. In 1947, history begins in 1834 when Toronto was the City of Toronto convened a meeting with incorporated as a city. Annexation of sur- the twelve surrounding suburbs to investi- rounding territory occurred from 1859 to gate improving the organization of public 1925. In 1929, thirteen Toronto civic de- services for the entire area. In 1949 another partment heads recommended that further report recommended that those twelve com- annexations stop until it could be shown that munities be united with the city of Toronto. “undoubted compensating advantages exist.” Premier wanted a solution ensur- As the depression continued to deepen in ing a municipal system would meet the needs the mid-1930s, ten Toronto area municipali- of the entire population of the region. Early ties were bankrupt and something had to be in 1950, the polling of municipal leaders done. The 1935 Plumtre Report dealt with showed that only Mimico and Toronto sup- the City of Toronto and its twelve adjacent ported amalgamation, so no changes were neighbours. It recommended “a general amal- made. More study was ordered! gamation of the municipalities of metropoli- The Cumming Report, issued on 20 tan Toronto.” Because of negative reaction, January 1953 recommended a federation the Liberal government of Mitch Hepburn with the creation of a new Metropolitan backed off and authorized more study. Toronto council. The City of Toronto con- Towards the end of, and immediately fol- demned this option, but on 25 February lowing, the Second World War, the greater 1953, Premier Frost personally moved the

OH autumn 2015.indd 266 08/09/2015 10:22:02 PM book reviews 267

reading of Bill 80 which recommended the that might exist. By 1964, the new Toronto formal establishment of the Municipality of mayor, Donald Summerville, was still in fa- . All suburban coun- vour of total amalgamation, while most of cils supported this idea, and Frost offered his the local municipalities were still supportive long-time friend and ally Fred Gardiner, the of a metropolitan system. On 10 January job as Chair of Metro Council. Gardiner who 1966, Premier Robarts advocated a two-level had initially supported total amalgamation, federated system that consolidated govern- wrote the premier to say “...that the metro- ment into six local municipalities, versus the politan form of government is a more appro- previous thirteen. priate answer to the problems involved.” In 1986, the Peterson Liberal govern- What was created became the first met- ment established a task force to examine is- ropolitan municipality of its kind in North sues of representation, accountability and America. Gardiner’s leadership resulted in responsiveness. By 1988, direct election of the establishment of a competent municipal Metro councillors was approved, whereas bureaucracy and the implementation of a originally half represented Toronto and half vast programme of public works. However all represented the other municipalities. Alan were not in agreement. Toronto mayor, Nath- Redway believes that this move helped to “... an Phillips, continued to press for total amal- drive a nail into the coffin of Metro Toronto,” gamation, and in doing so caused friction be- because Metro councillors now had no local tween city and suburban council members. In responsibilities. This change turned former 1956, a start on further integration was made Toronto mayor , previously when thirteen individual police departments an advocate of neighbourhoods, into a sup- were merged into one, and thirteen licensing porter of total amalgamation. The Rae NDP bodies into one, both under control of Metro government was elected in 1990. Another Council. In a 1958 report, it was found that task force chaired by Anne Golden was ap- “...the application of the principle of federa- pointed to recommend potential restructur- tion was a sound and practical approach.” It ing of municipal and provincial governments. was also suggested that there was “...unwill- This report was released in January 1996, af- ingness to make any drastic change in the ex- ter the election of the govern- isting organization at the present time.” Evi- ment. Harris had campaigned on a platform dence showed that the City of Toronto was for the reform of local government, and the still opposed to the federation concept, but Burnham Review was ordered to get reac- suburban municipalities were now even more tion to the Golden Report and another study opposed to amalgamation. By 1960, there put out by four GTA mayors. The Burnham was, however, general concern about inequal- recommendations arrived at different con- ity of representation on Metro Council. clusions than the Golden Report did, and In 1962, John Robarts became the new tended to mirror findings in the four mayors’ premier and William Allen was appointed report. As a consequence, by October 1996, the new Metro Chair. Through Allen’s -ef the Conservative government told local may- forts, as well as the building of additional ors that total amalgamation was in the works. hard services, a new emphasis was put on This eventually lead to the passing of Bill 103, social services. The province still believed resulting in the ultimate demise of Metro To- that “... the basic system should remain un- ronto and in the creation of the amalgamated changed,” but that another study should be Megacity. conducted to correct any possible inequities The remaining chapters in Alan - Red

OH autumn 2015.indd 267 08/09/2015 10:22:03 PM 268 ONTARIO HISTORY

way’s book deal with citizen opposition to else to be considered. Noting that Kathleen full amalgamation, the impact of disentan- Wynne was opposed to amalgamation before glement/off loading, government claims as becoming premier, Redway feels it is time to the benefits of amalgamation, the utility that she initiates a review of a drastically cen- of small scale government, de-amalgamation, tralized Toronto government, which in his and examples of where de-amalgamation opinion has drastically diminished resident/ have been attempted or successfully carried taxpayer access to and participation in mu- out. The author’s conclusion investigates nicipal decision making. where the City of Toronto could go from Redway’s work raises some interesting here. Redway calls for a serious review and questions to ponder, but also the book it- re-evaluation of the city’s current political self, in the words of East York journalist Joe state, and suggests a return to the pre-amal- Cooper, “...is valuable reading for anyone gamation form of government. This he be- who wants to understand this city’s [To- lieves would bring decision making back ronto] municipal politics and cares about its to our community councils, which in turn future as a working city.” I would agree with would facilitate improved local government. Cooper’s assessment. Do get your own copy It is the author’s hope that a groundswell of of this wonderful book! public opinion will show the provincial gov- ernment that the current form of municipal Dr. John C. Carter, governance in Toronto is not working very Research Associate, School of Humanities, well, and therefore it is time for something University of Tasmania

Mission Life in Cree-Ojibwe Country Memories of a Mother and Son, Elizabeth Bingham Young and E. Ryerson Young Edited and with an introduction by Jennifer S.H. Brown

Edmonton: AU Press (Athabasca University), 2014. 316pp. $29.95 paperback. ISBN 978-1-77199-003- 5. Free pdf. ISBN 978-17719-004-2. $29.95 eBook. ISBN 978-177199-005-9. (www.aupress.ca)

his is a book of many layers, of interest peg, these reminiscences of Elizabeth Bing- Tand accessible to diverse audiences. The ham Young and her son, E. Ryerson Young, undergraduate or interested reader search- of their years at Norway House and Berens ing for the telling anecdote of family and River offer a perspective on the history of bush life in Canada in the last quarter of the their own families—Paupenekis, Ross, Harte nineteenth century will find much to engage and many others—and on the extensive with. These accounts of the hardships and Christian tradition of their communities. endurance of an Ontario missionary family Jennifer Brown, now Professor Emeritus might offer spiritual sustenance to some, and of the University of Winnipeg, is an experi- the reader may even be led to reflections on enced editor of historical documents. Here the institutional role of the United Church she draws on the manuscripts of the Young of Canada amongst First Nations. Even more family now in the United Church Archives importantly, to the people of Lake Winni- in Toronto and the personal collection of her

OH autumn 2015.indd 268 08/09/2015 10:22:03 PM