The Municipality of Metropolitan Toronto was an upper-tier level of municipal government in Ontario, Canada, from 1953 to 1998. It was made up of the old city of Toronto and numerous townships, towns and villages that surrounded Toronto, which were starting to urbanize rapidly after World War II. It was commonly referred to as "Metro Toronto" or "Metro".
Prior to the formation of Metropolitan Toronto, the municipalities surrounding the central city of Toronto were all independent townships, towns and villages within York County. After 1912, the city no longer annexed suburbs from York Township. At times, the suburbs asked to be annexed into Toronto, but the city chose not to do so.
In 1924, Ontario cabinet minister George S. Henry was the first to propose a 'metropolitan district' with its own council, separate from the city and the county, to administer shared services. He wrote a draft bill, but the government chose not to act on it.[1]
The Great Depression saw almost all of the towns and villages of the county become insolvent. When that happened, they were financially taken over by the province. In 1933, Henry, now the premier, appointed a formal inquiry into forming a metropolitan district. A proposal was made for Toronto to provide several of its services to the suburbs as well. The inquiry died with the defeat of Henry in 1934.[2]
In the 1930s, a Liberal Ontario government named the first minister of municipal affairs, David A. Croll, and introduced a draft bill to amalgamate Toronto and the built-up suburbs. The draft bill faced strong opposition in Toronto and was withdrawn. The government then started its own inquiry into issues of the suburbs surrounding Toronto. Through consensus, it came to the conclusion that a metropolitan municipality was the best solution. The inquiry reported in September 1939, and its conclusions were put aside for the duration of World War II.[2]
Two factors changed in the 1940s. A Progressive Conservative Party of Ontario (PCO) government was elected in 1943, with a changed policy, intending to promote economic growth through government action. Also in 1943, the first Master Plan was adopted in Toronto. It recognized that future growth would take place in the vacant land of adjacent suburbs. Planning would have to take into account the whole metropolitan area.[3]
Forest HillreeveFred Gardiner, who was politically well-connected to newly elected PC premier George Drew, now promoted the idea of ambitious new programs to lay the capital infrastructure for growth. In 1946, the province passed the Planning Act, which required each urban municipality to have its own Planning Board. A Toronto and Suburban Planning Board was founded, under the chairmanship of James P. Maher, and the vice-chairmanship of Fred Gardiner. The Board promoted specific projects, and also promoted a suburban 'green belt', a unified system of arterial roads and the creation of a single public transit network.[4]
The Board was ineffective. Projects such as a bridge across the Don River Valley and the Spadina Road Extension (the basis for the later Spadina Expressway) were rejected by the local municipalities. Gardiner, elected as chairman of the board in 1949, wrote to Premier Leslie Frost that only a unified municipality could measure up to the problems. In 1950, the City of Toronto Council voted to adopt an amalgamated city, while nearly all of the suburbs rejected the amalgamation.[5]
From 1950 until 1951, the Ontario Municipal Board held hearings on the proposal, under the chairmanship of Lorne Cumming. The Board worked until 1953, releasing its report on January 20, 1953. Cumming's report proposed a compromise solution: a two-tiered government, with the formation of a Metropolitan government, governed by a Metropolitan Council, to provide strategic functions, while existing municipalities would retain all other services. He rejected full amalgamation, citing a need to preserve 'a government which is very close to the local residents.'[6]
Formation
The Frost government moved immediately and on February 25, 1953, introduced the bill (An Act to provide for the Federation of the Municipalities in the Toronto Metropolitan Area for Certain Financial and Other Purposes[7]) to create the Municipality of Metropolitan Toronto. The new municipality would have the power to tax real estate and borrow funds on its own. It would be responsible for arterial roads, major sewage and water facilities, regional planning, public transportation, administration of justice, metropolitan parks and housing issues as needed. The municipalities retained their individual fire and police departments, business licensing, public health and libraries.[8]
The council would have its own chairman, selected by the province initially, then to be elected by the Council itself after 1955. Premier Frost convinced Fred Gardiner, who still preferred amalgamation, over the metro scheme, to take the job. Gardiner was well known to Frost through the Conservative Party, was well-off, was felt to be beyond personal corruption. Gardiner accepted the position partly due to his friendship with Frost, and he demanded that he retain his corporate connections. He also felt that the job would be "bigger than anything he had tried before." The bill to form Metro was passed on April 2, 1953. The Gardiner appointment was announced on April 7.[9]
In Canada, the creation of municipalities falls under provincial jurisdiction. Thus it was provincial legislation, the Metropolitan Toronto Act, that created this level of government in 1953. When it took effect in 1954, the portion of York Township not yet annexed by Toronto, as well as all of Scarborough and Etobicoke Townships were incorporated as part of the Municipality of Metropolitan Toronto, and seceded from York County.
Metropolitan Toronto had planning authority over the surrounding townships such as Vaughan, Markham, and Pickering, although these areas did not have representation on Metro Council.
Growth and mergers
Gardiner was Metro chairman from 1953 until the end of 1961. During his tenure, Metro built numerous infrastructure projects, including the opening of the first subway line, start of construction of the second subway line, water and sewage treatment facilities, rental housing for the aged and the Gardiner Expressway, named after Gardiner. Metro also amalgamated the various police forces into one in 1956. It was a period of rapid development of the suburban municipalities of Metro. The population of Metropolitan Toronto increased from one million to 1.6million by the time he left office.[11]
As a result of continued growth, the province reorganized Metro in 1967. The seven small towns and villages, which were no longer any denser than the surrounding areas, were merged into their surrounding municipalities. This left the City of Toronto and the five townships, which at this time were re-designated as boroughs (all but East York were later incorporated as cities). Long Branch, New Toronto, and Mimico were absorbed back into Etobicoke; Weston was absorbed into York; Leaside into East York; and Swansea and Forest Hill, into Toronto, resulting in an unusual final situation where none of the municipalities outside the city were ever entities founded as distinct historic urban settlements in their own right. The reorganized Metropolitan Toronto adopted a flag and decal using a symbol of six rings representing the six municipalities.[citation needed]
Development pattern
Development in Metro Toronto generally unfurled outward smoothly from the City of Toronto into the surrounding municipalities with little leapfrogging, giving it the growth continuum of a single city. For example, most of the areas of the small inner boroughs of York and East York, were in effect, extensions of inner city Toronto and gradually transitioned into the more typical suburban areas of the outer municipalities[12] (which also had such inner-city areas where they bordered Toronto). Given that none of the boroughs originated as distinct settlements, they did not have their own downtowns. To give themselves an identity distinct from the City of Toronto (which was deemed particularly important after being reincorporated as cities), North York and Scarborough built planned city centres: North York City Centre and Scarborough City Centre respectively. This pattern was in contrast to other metropolitan areas like Hamilton-Wentworth, where suburbs such as Stoney Creek had historic cores and whose inner areas were well separated from inner-city Hamilton.
As the seats on Metro Council were reapportioned according to population, the council was now dominated by the suburban majority; but it continued to address suburban and inner city issues in equal measure.
In the 1995 provincial election, PCO leader Mike Harris campaigned on reducing the level of government in Ontario as part of his Common Sense Revolution platform, and promised to examine Metropolitan Toronto with an eye to eliminating it. However, in the end the Harris government announced what they saw as a superior cost-saving plan. The six municipalities of Metro Toronto would be amalgamated into a single-tier city of Toronto. This was a major break from the past, which had seen the core simply annex suburbs. Similar amalgamations were planned for other parts of Ontario, such as Ottawa and Hamilton.
The announcement touched off vociferous public objections to what the media termed the "megacity" plan. In March 1997 a referendum in all six municipalities produced a vote of more than 3:1 against amalgamation.[13] However, municipal governments in Canada are creatures of the provincial governments, and referendums have little to no legal effect. The Harris government could thus legally ignore the results of the referendum, and did so in April when it tabled the City of Toronto Act. Both opposition partiesheld a filibuster in the provincial legislature, proposing more than 12,000 amendments that allowed residents on streets of the proposed megacity take part in public hearings on the merger and adding historical designations to the streets.[14] This only delayed the bill's inevitable passage, given the PCO's majority. The amalgamation would take place effective January 1, 1998, at which time the new City of Toronto (legal successor of Old Toronto) came into existence.
Political structure
Originally, members of the Metropolitan Toronto Council also sat on their respective lower-tier councils; they were not directly elected to the upper-tier council, and because Toronto councillors often voted in a bloc, inner-city issues tended to dominate.
From its inception in 1953 until the 1966 municipal election, Metropolitan Toronto Council consisted of the mayor of Toronto, two members of the Toronto Board of Control (the top two finishers of the four in municipal election) and one mayor or reeve from each of the 12 suburbs, and was presided over by the Metro chairman who did not have a seat.[15][16][17][10]
With the 1966 election, as the result of the reorganization of the 13 municipalities into the City of Toronto and five boroughs, representation on Metropolitan Toronto Council also changed and the body was expanded from 22 to 32 seats, with greater representation from the suburbs which now had 20 out of 32 seats on the body – up from 11 out of 22 with seats roughly allocated according to population. The distribution of seats was as follows. Toronto (12), North York (6), Scarborough (5), Etobicoke (4), York (3), East York (2).
The new Metro Council was made up of the mayor of Toronto, two of the four members of the Toronto Board of Control, senior aldermen from the nine wards of the City of Toronto, the mayor of Scarborough and the four members of Scarborough's Board of Control, the mayor of Etobicoke and three of the four members of Etobicoke's Board of Control (the top three in terms of votes), the mayor of York and its two Controllers, the mayor of East York and one alderman, selected by East York council, the mayor of North York, all four members of North York's Board of Control, and one alderman selected by North York's council.[15] After the Toronto Board of Control was abolished with the 1969 Toronto municipal election, Toronto's contingent on Metro Council was made up of the mayor of Toronto and 11 senior aldermen – with the nine previous city wards being redrawn into 11 wards.
In the City of Toronto the person who achieved the greatest number of votes in a ward was named the senior alderman. The person with the second most votes was the junior alderman. Both aldermen sat on the Toronto City Council, but only the senior alderman sat on Metro Council. With the 1985 Toronto municipal election the Metro Councillor and City Councillor in the City of Toronto were elected separately though from the same ward. The Metro Councillors still sat on both the Toronto and Metro Council, however. The suburbs retained the status quo and still did not have direct elections to Metro.
The Province of Ontario changed this arrangement with the 1988 municipal election, requiring direct elections to Metro Council from all of Metro's municipalities and severing the links between the two tiers. The suburban boards of control were abolished and Metro Councillors were elected from new Metro Wards, which were larger than the city and borough wards. Now only the mayors of the six member municipalities sat on both the upper-tier and lower-tier councils.
The first chairman of Metropolitan Toronto, Fred Gardiner, was appointed by the province; subsequent chairmen were elected by Metro Council itself. The Metro chairman was, for many years, an ex-officio member of the council without having to be elected to Metro Council by constituents as either a local mayor, controller, alderman or councillor. Beginning in 1988, the position of chairman was chosen by council members from amongst its own members (excluding mayors who could vote for Metro councillors but could no longer run for the position).
As usual in Ontario municipalities, these councils were non-partisan, although in later years some councillors (and candidates) did identify themselves explicitly as members of particular political parties. Metro councillors were elected by plurality.
List of Metro chairmen
From the inception of Metro Toronto until amalgamation, there were six chairmen altogether:
Metro Toronto wards established in 1988 were given names that contained the number of the ward, name of municipality and the name of the local communities:
East York
Metro Toronto Ward 1 – East York
Etobicoke
Metro Toronto Ward 2 – Lakeshore-Queensway
Metro Toronto Ward 3 – Kingsway-Humber
Metro Toronto Ward 4 – Markland Centennial
Metro Toronto Ward 5 – Rexdale-Thistletown
North York
Metro Toronto Ward 6 – North York Humber
Metro Toronto Ward 7 – Black Creek
Metro Toronto Ward 8 – North York Spadina
Metro Toronto Ward 9 – North York Centre South
Metro Toronto Ward 10 – North York Centre
Metro Toronto Ward 11 – Don Parkway
Metro Toronto Ward 12 – Seneca Heights
Scarborough
Metro Toronto Ward 13 – Scarborough Bluffs
Metro Toronto Ward 14 – Scarborough Wexford
Metro Toronto Ward 15 – Scarborough City Centre
Metro Toronto Ward 16 – Scarborough Highland Creek
Metro Toronto Ward 17 – Scarborough Agincourt
Metro Toronto Ward 18 – Scarborough Malvern
Toronto
Metro Toronto Ward 19 – High Park
Metro Toronto Ward 20 – Trinity-Spadina
Metro Toronto Ward 21 – Davenport
Metro Toronto Ward 22 – North Toronto
Metro Toronto Ward 23 – Midtown
Metro Toronto Ward 24 – Downtown
Metro Toronto Ward 25 – Don River
Metro Toronto Ward 26 – East Toronto
York
Metro Toronto Ward 27 – York Humber
Metro Toronto Ward 28 – York Eglinton
City Hall and Metro Hall
At its inception in 1953, Metro was headquartered at a six-floor building at 67 Adelaide Street East (now home to Adelaide Resource Centre for Women). When the new Toronto City Hall opened in 1965, one of its twin towers was intended for Metro Toronto offices and the other for the City of Toronto; the two councils shared the central Council Chamber. Eventually this space proved inadequate and committee facilities and councillors' offices were relocated to an office tower at the southwest corner of Bay and Richmond Street (390 Bay Street), across from City Hall; Metro Council continued to meet in the City Hall council chamber. Finally, in 1992, the Metro government moved out of Toronto City Hall altogether and into a newly constructed Metro Hall at 55 John Street, which was designed by Brisbin Brook Beynon Architects (BBB Architects).
The amalgamated council chose to meet at City Hall, though it temporarily met at Metro Hall while City Hall was retrofitted for the enlarged council. Metro Hall continues to be used as office space by the City of Toronto.
Services
A Metropolitan Toronto plaque on a city overpass.
The following is a list of services that were funded and provided by the Metro government:
Economic Development Division
Metro Toronto Welfare and Social Services (Welfare, homes for the aged, children's services)
Metro Toronto Police (since renamed Toronto Police Service and retains Metro Toronto's coat of arms in its logo)
Metropolitan Separate School Board operated English-language public separate schools and Les Conseil des écoles catholiques du Grand Toronto operated seven French-language Catholic schools.
In addition, the following agencies were Metro government agencies:
North York is a former township and city and is now one of the six administrative districts of Toronto, Ontario, Canada. It is located in the northern area of Toronto, centred around Yonge Street, north of Ontario Highway 401. It is bounded by York Region to the north at Steeles Avenue, on the west by the Humber River, on the east by Victoria Park Avenue. Its southern boundary corresponds to the northern boundaries of the former municipalities of Toronto: York, Old Toronto and East York. As of the 2016 Census, the district has a population of 644,685.
York is a district and former city within Toronto, Ontario, Canada. It is located northwest of Old Toronto, southwest of North York and east of Etobicoke, where it is bounded by the Humber River.
Toronto City Council is the governing body of the municipal government of Toronto, Ontario. Meeting at Toronto City Hall, it comprises 25 city councillors and the mayor of Toronto. The current term began on November 15, 2022.
Alan Tonks is a former Canadian politician. He was the Liberal MP for the federal riding of York South—Weston in Toronto from 2000 to 2011, and was the final Metro Toronto Chairman before the amalgamation of Metro Toronto into the new City of Toronto.
William Randall Allen was a Canadian lawyer and politician who served as the Chairman of the Municipality of Metropolitan Toronto from 1962 to 1969. He is the namesake of the William R. Allen Road in Toronto, Ontario.
Frederick Goldwin Gardiner, was a Canadian politician, lawyer and businessman. He was the first chairman of Metropolitan Toronto council, the governing body for the Municipality of Metropolitan Toronto, from 1953 to 1961. As Metro Chairman, Gardiner, nicknamed "Big Daddy," was a staunch advocate of growth and expansion and was responsible for many capital works projects, including the Gardiner Expressway and the Don Valley Parkway.
Albert McTaggart "Ab" Campbell (1910–1973) was a Canadian politician and the Chairman of Metropolitan Toronto from 1969 to 1973.
The Chairman of the Municipality of Metropolitan Toronto or Metro Chairman was the regional chair of Metropolitan Toronto, Ontario, Canada, and the most senior political figure in the municipality. The Metro Chairman was elected by the members of Metropolitan Toronto Council.
The City of Toronto Act is the name of a series of different acts of the Legislative Assembly of Ontario that have governed the organization and political powers of the city since Toronto's original incorporation as a city in 1834.
The municipal government of Toronto is the local government responsible for administering the city of Toronto in the Canadian province of Ontario. Its structure and powers are set out in the City of Toronto Act.
The amalgamation of Toronto was the creation of the city limits of Toronto, Ontario, Canada after amalgamating, annexing, and merging with surrounding municipalities since the 18th century. The most recent occurrence of amalgamation was in 1998, which dissolved the federation of Metropolitan Toronto and its constituent municipalities, and created the current "megacity" of Toronto.
Municipal elections were held in Toronto, Ontario, Canada, on December 5, 1966. The elections were the first in Toronto after its merger with several smaller suburban communities on January 1, 1967. Forest Hill and Swansea were annexed by the City of Toronto, Leaside was merged with the Township of East York to become the Borough of East York. Weston was combined with the Township of York to form the Borough of York. The Village of Long Branch and the towns of Mimico and New Toronto were merged with the Township of Etobicoke to form the Borough of Etobicoke.
Municipal elections were held in Toronto, Ontario, Canada, on December 3, 1962. Incumbent mayor Nathan Phillips, then the longest-serving mayor in Toronto history, lost to Controller Donald Summerville by a significant margin.
The Board of Control of Toronto, Ontario, Canada, was a part of its municipal government until it was abolished in 1969. It served as the executive committee of the Toronto City Council. When it was initially created in 1896 by mandate of the provincial government, it consisted of three Controllers appointed from and by the aldermen, and presided over by the Mayor of Toronto. Beginning in 1904, the Board of Control was directly elected by the city's electorate and consisted of four Controllers, presided over by the Mayor. Each voter could vote for up to four candidates, and the four with the most votes were elected. By tradition the controller who received the most votes would get the powerful budget chief position.
Municipal elections were held in Toronto, Ontario, Canada, on December 7, 1953. Incumbent mayor Allan Lamport won an unexpectedly close race against school board chairman Arthur J. Brown. This election was the first for councils in the municipality of Metropolitan Toronto which would be created on January 1, 1954 and was composed of 14 municipalities: the City of Toronto, the towns of New Toronto, Mimico, Weston and Leaside; the villages of Long Branch, Swansea and Forest Hill, and the townships of Etobicoke, York, North York, East York, and Scarborough.
Ann Marie Curtis, née McCarthy, was a Canadian politician, who served as the reeve of the Toronto suburb of Long Branch, Ontario from 1953 to her retirement in 1962. She was the first, and only, woman to become reeve of Long Branch. She and Dorothy Hague of the Village of Swansea were the first women to become reeves or mayors in the Toronto area, both taking office for the first time on January 1, 1953. As reeve, she also served on Metropolitan Toronto Council from its creation in 1953 until 1962 and was the first woman on its executive.
Norman Goodhead was Reeve of the Township of North York, Ontario from 1959 to 1964 and was twice a leading candidate to be Chairman of Metropolitan Toronto.
References
Colton, Timothy J. (1980). Big Daddy. Toronto, Ontario: University of Toronto Press. ISBN0-8020-2393-2.
Levine, Allan (2014). Toronto: Biography of a City. Madeira Park, British Columbia: Douglas & McIntyre. ISBN978-1-77100022-2.
1 2 "Etobicoke adds new mayor's face to Metro Council: Metro Council will be more alert to public opinion", Baker, Alden. The Globe and Mail (1936–2016); Toronto, Ont. [Toronto, Ont]December 6, 1966: 37.
↑ "Metro's Day, Metro's Duty", The Globe and Mail (1936–2016); Toronto, Ont. [Toronto, Ont]December 5, 1960: 6.
↑ "Dual Role: Metro's 2-Hatted 2 Dozen" The Globe and Mail (1936–2016); Toronto, Ont. [Toronto, Ont]December 9, 1964: 5
Ontario (1953). "An Act to provide for the Federation of the Municipalities in the Toronto Metropolitan Area for Certain Financial and Other Purposes, c 73". Statutes of the Province of Ontario. pp.405–502.
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