red hill dissertation: chapter 3
TRANSCRIPT
-
8/14/2019 Red Hill Dissertation: Chapter 3
1/50
3. Accelerating Development and Resistance:
Contested Landscapes and Political Narratives
Urban Infrastructure, Suburbanization and the Automobile
During the early twentieth century, the private automobile became one of the pre-
eminent symbols of the technological progress and personal freedom represented by
modernization (Sheller and Urry 2002). Urban vitality was increasingly associated with
the unobstructed circulation of people, goods and services, conceptualizing roadways as
the veins and arteries of the city (Park et al 1925). As early as the 1920s, highway
infrastructure and the automobile were widely celebrated as a civilizing force with
universal benefits, emblems of human freedom and ingenuity that few could afford but
many admired. Hamilton became the home of Canadas first automobile club in 1903
and local media soon echoed the booster fanfare that had surrounded the Great Western
Railway, praising the increasing governmental support for highway construction. The
Hamilton Spectatorpredicted that the city would become the hub of the good roads
system in Southern Ontario and favourably quoted engineer Austin Byrnes description
of the highway as the literal embodiment of Western progress and civilization: Roads
are the physical symbol by which to measure the progress of any age or people. If the
community is stagnant, the conditions of the roads will indicate the fact; if they have no
89
-
8/14/2019 Red Hill Dissertation: Chapter 3
2/50
roads they are savages (quoted inHamilton Spectator, October 8, 1919).1 The idea of
roads as catalysts of progress and civilization endures.
The construction of highways suitable for automobile traffic was also seen by many
as a way of strengthening economic and social connections between communities
(Hamilton Herald, December 15, 1923). TheHamilton Spectator(October 8, 1919)
proclaimed that the road is the connecting link between the rural and the urban, the
producer and the consumer it brings the country and city closer together, makes their
interests less selfish, broadens the outlook of both the urban and rural resident, educates
each to appreciate the other, and it is a financial benefit that cannot be estimated.
Landscaped parkways were widely promoted as a way of bringing urban drivers
closer to nature through an appreciation of the rural countryside (Wilson 1991). Scenic
drives provided leisurely, recreational routes within the city, often adjacent to parkland
1 TheHamilton Spectatorwas founded in 1846. Following the failure of theHamilton Times in
1920 and theHamilton Heraldin 1936, the Spectator became the regions only major dailynewspaper a status that it retains to this day. This is, of course, quite unusual in a Canadiancity of over 500,000 people. Many of the people I interviewed for my research suggested thatthe Spectator has a great deal of influence over political affairs in Hamilton. Freeman andHewitt (1979) reach a similar conclusion, claiming that the papers monopoly of the localmarket gives it tremendous social and political influence on the area, beyond that of any othercomparable media or business organization. Indeed, I relied heavily on theHamilton Spectatorfor my historical research, as there are no other competing publications that have provided asmuch coverage of this issue. Freeman and Hewitt argue that the Spectatorwas notable for itscommitment to local news and investigative journalism during the 1960s, but that a change inupper management during the 1970s introduced heavy-handed constraints on such criticaljournalism and a turn towards a policy of strict editorial control. A number of reporters left the
paper at this time. One, Paul Warnick, recalled that the new editors wanted a paper that doesnot offend anyone. A family paper that just reported good news. His version lacked any positivethrust and it tended to dishearten the journalists (quoted in Freeman and Hewitt 1979: 97).Many believe that the Spectatorcontinues to demonstrate a pro-business editorial bias. Manyof the people I interviewed maintained that coverage of the Red Hill debate had been biased,but this included both those against the expressway and those in favour, who detected anenvironmental bias in the paper during the 1990s. What is clear is from my research is that theSpectatoreditorial board began advocating for the road in the 1970s, following the period ofmanagerial change identified by Freeman and Hewitt.
90
-
8/14/2019 Red Hill Dissertation: Chapter 3
3/50
(Figure 3.1). As Matthew Gandy notes, nature became simultaneously more distant
(framed by the window of a moving car), more accessible (through greater public
contact with remote areas), and at the same time more individualized as an aesthetic
experience (2002: 122).
Figure 3.1: A scenic drive following the edge of the Hamilton Escarpment,
c. 1950 (Architectural Conservancy of Ontario, 2008)
Despite this growing enthusiasm for the civilizing pleasures of the private
automobile, ownership remained limited to wealthy segments of the population during
the interwar period and urban development continued to concentrate around electric
streetcars lines in many cities, including Hamilton.2 The extension of bus service to the
escarpment in 1923 was followed by the annexation of land further south in 1929 and a
2
Streetcars were gradually replaced by motorized buses and eventually ceased operation in1949.
91
-
8/14/2019 Red Hill Dissertation: Chapter 3
4/50
gradual increase in population on the Mountain. A burst of housing construction in the
late 1920s, aided by funding from higher levels of government, focused predominantly
on new homes in the affluent west-end suburbs and on apartment buildings concentrated
near major downtown streets. Eastward expansion was limited by the abundance of
properties for infill development and the gradual extension of industrial lands into the
harbour. However, roadways and scattered land developments had begun to transform
the eastern periphery of the city, including the construction of a small airport adjacent to
the Red Hill Valley and a dumpsite near the mouth of the creek (Wood 1987).
Hamiltons manufacturing sector thrived during the late 1920 but this boom was cut
short by the stock market collapse of 1929.3 While countries all around the world were
negatively affected by the crash, Canada was hit particularly hard due to its substantial
reliance on the export of wheat and other commodities. Between 1929 and 1933, the
height of the Great Depression, gross national product had declined by 40% and
national unemployment had risen to 27% (Struthers 1983). As the prices and export of
commodities rapidly declined, the worst hardships were faced by the working classes of
those regions most directly dependent upon primary industries such as farming, logging
and mining (Berton 1990). While the province of Ontario, with its more diversified
industrial economy, suffered less severe impacts, manufacturing centres such as
3 The various factors involved in the onset of the Great Depression remain the topic of debatebut include excessive stock speculation, an overproduction of goods within the United States,and a decline in consumer demand as wage reductions and unemployment further reduced thelimited spending capacity of most individuals and families (Devine 1993). Having establisheditself as a major creditor following the First World War, these problems in the US economytriggered a string of financial crises in other countries linked by the Gold Standard system offixed currency rates.
92
-
8/14/2019 Red Hill Dissertation: Chapter 3
5/50
Hamilton faired poorly as demand for industrial equipment, structural steel and
agricultural products rapidly declined. Many Hamilton manufacturers scaled back
drastically, cutting wages and laying off thousands of workers, and even large
companies such as Dofasco faced the threat of bankruptcy (Wood 1987).
All levels of government were unprepared to deal with the growing numbers of
jobless workers. Unemployment relief provided by the federal government initially
focused primarily on cost-sharing programs for provincially and municipally
administered public works programs (including the creation of national parks), until
protest from lower levels of government and the public increased the flow of direct
funds in 1932. Despite this increase in funding, Hamilton struggled as the demand for
relief increased. By 1933, this crisis would touch one in four families in the city. That
same year, a Public Welfare Department was created to distribute relief money and soon
began employing investigators to determine the eligibility of client families according to
their spending habits and level of sobriety (Weaver 1982).4
The Second World War brought dramatic changes to Hamilton. Although the war
did not generate the kind of local support evident in 1914, an estimated 20,000 local
men served in the armed forces (Freeman 2001). Many returned wounded or were killed
overseas. The surge in demand for munitions and other military supplies revitalized
4 These authoritarian measures, which included work camps established by the federalgovernment, fuelled discontent amongst the unemployed and helped garner support for aflourishing of working-class political organization that ranged from cross-country marches tothe creation of a new political party, the social democratic Cooperative CommonwealthFederation (which would merge with the Canadian Labour Congress in 1961 to create the NewDemocratic Party of Canada) (Berton 1990).
93
-
8/14/2019 Red Hill Dissertation: Chapter 3
6/50
local industries and brought a massive influx of workers to the city. By 1942 the city
faced an unprecedented housing crisis (Wood 1987). Responding both to the housing
crisis and to new provincial zoning regulations, the municipal government hired
planning consultants to develop a master plan for directing and managing the future
growth of the city. E.G. Faludis master plan, completed in 1947, classified the majority
of the residential communities in the citys industrial north-end as blighted and
recommended that these areas be zoned exclusively for industrial uses. The plan called
for the expansion of this industrial zone along the waterfront and advocated further
infilling of the harbour, with obnoxious industries to be located out beyond the
eastern city limits. Faludis vision ruled out recreational uses of the harbour, while
advocating the designation of recreational areas along the shores of Lake Ontario and a
greenbelt park system at the edges of the city, including the Red Hill Valley (Cruikshank
and Bouchier 2004).
This influential plan utilized land use zoning as a means of compartmentalizing
what were seen as the different essential functions and spaces of the city in order to
facilitate better management of the whole. This view accorded with the prevailing
notion of planning as a means of imposing rational order on urban chaos (Boyer 1983).
Building upon the functionalist model of urban metabolism, the modern city was
conceptualized as an engineered system that could be perfected by scientific
management and unified by the construction of more efficient circulatory networks such
as roads, sewers, water pipes and electrical wires. As Matthew Gandy (2006: 68)
observes, by the early twentieth century we find an increasing emphasis on the
94
-
8/14/2019 Red Hill Dissertation: Chapter 3
7/50
scientific management of cities in the segregated and hierarchical ordering of urban
space. From this perspective, urban spaces were seen not as lived spaces but as raw
material abstracted and modular zones that could be reorganized and re-engineered to
serve a particular function in the larger urban machine or organism (Lefebvre 1991).
The practice of modern urban planning, underpinned by faith in linear technological
progress and the transformative possibilities of rational, objective and non-political
engineering, gave rise to grand visions of urban revitalization, but often overlooked or
disregarded socio-ecological complexities on the ground (Graham and Marvin 2001).
In the case of Hamilton, the official zoning of industrial lands had the effect of
facilitating the growth of the city as an industrial port while formally legitimating and in
some cases intensifying social and environmental inequalities. As the modern city was
divided into discreet uses and zones, residential areas themselves became more sharply
differentiated on the basis on income, language and country of origin. Many new
immigrants and working class families settled in the north end neighbourhoods adjacent
to the industrial waterfront while suburban housing developments aimed at middle and
upper class residents began to rapidly expand on the escarpment (Wood 1987). By mid-
century, the new zoning measures had virtually eliminated the waterfront as a space for
recreational and residential use, sanctioned the further extension of industrial lands into
the harbour and encouraged the encroachment of industrial development into
neighbouring residential areas designated as blighted (Cruikshank and Bouchier
2004) (Figure 3.2).
95
-
8/14/2019 Red Hill Dissertation: Chapter 3
8/50
Figure 3.2: Aerial view of industrial development along Hamiltons eastern
waterfront, 1970s (Weaver 1982)
Those living adjacent to or within the industrial zones lining the waterfront and the
north end were faced with growing levels of water and air pollution. In 1943, a
provincial investigation estimated that 70 million gallons of industrial waste and 25
million gallons of municipal sewage flowed into the bay each day, a good portion
untreated (Hamilton Spectator, December 23, 1943). For many local people, the harbour
had been transformed from an environmental resource to a hazard. Of course, pollutants
did not remain confined to the careful divisions of space introduced by urban planners
and soon swimming, long since banned on the south shore, was prohibited along the
north shore and beach strip sites frequented by more affluent citizens. Similarly, air
pollutants did not remain within the industrial core or along major arteries, spreading
96
-
8/14/2019 Red Hill Dissertation: Chapter 3
9/50
throughout the city as industrial activity and roadways expanded (Cruikshank and
Bouchier 2004).
These local changes in urban form and spatial organization were influenced in large
part by the Fordist systems of mass production, distribution and consumption that
proliferated in the wake of the Second World War. The Fordist model of development or
regime of accumulation was based on compromises between large corporations,
labour movements and the state.5 While industrial automation and Taylorist managerial
strategies had made it possible to produce standardized commodities on a grand scale it
was widely recognized, following the organizational vision of mass production and
mass consumption promoted by Henry Ford, that this increase in mass produced
commodities would require a corresponding increase in the time and resources available
to consumers (Lipietz 1992).
In response to growing pressure from labour movements and in an effort to address
the crisis of overproduction that many saw as a central factor in the onset of the Great
Depression, the Fordist paradigm advocated governmental regulation of wages and
prices to promote high levels of unemployment and collective wage bargaining to reach
5 The regime of accumulation is a concept from the regulationist school of political economy.It refers to the prevailing or hegemonic model for organizing the production and reproduction oflabour power and capital in a given historical period. This includes forms of inter-capitalistcompetition, investment and financial management strategies, established and institutionalized
relationships between capital and labour, and forms of government and governance at variousscales. These elements are related to each other by modes or processes of social regulationinstitutionalized practices and rules, social norms and habits that provide a tenuous andtemporary foundation for compromise between the conflicting interests that threaten todestabilize the mode of accumulation (Lipietz 1992; Esser and Hirsch 1994; Goodwin andPainter 1996). The regime of accumulation should be understood not as a categoricallyexclusive periodization of political economic change, but as a way of linking together trendsand explaining periods of general stability within capitalist economies.
97
-
8/14/2019 Red Hill Dissertation: Chapter 3
10/50
negotiated compromises with trade unions (Aglietta 1979). Governments in the
wealthier capitalist nations adopted Keynesian economic policies that included
increased national spending and financial support for public services and infrastructure;
the subsidization of domestic industries; wage increases and provisions for job security;
and improvement of access to standardized social services such as health care,
education housing and unemployment insurance.6 Many of these standardized services
were administered at the municipal scale, involving an increased degree of government
planning of economic and social life (Painter 1995: 284). This development model
proved to be quite successful in raising living standards, reducing international rivalries
and containing the crisis tendencies of capitalist economies, leading to a twenty-five
year period of relatively stable and sustained growth (Harvey 1990).
Of course, the compromises reached between governments, corporations and labour
in the post-War period were partial, tenuous and hard-won, in part the result of decades
of organizing and protest on the part of labour movements.7A number of local strikes
6 John Maynard Keynes ([1936] 1980) and other influential theorists argued that economicstability could only be provided by government intervention and investment, in order tostimulate demand and insulate domestic economies from both the nationalistic rivalries that haderupted in two World Wars and the potentially fatal problems of overproduction that had beenexperienced during the Great Depression of the 1930s. Keynes recognized that profitabilityrequires a certain degree of unemployment, as costs are reduced by lowering wages or replacingworkers with new technologies, but he demonstrated that these measures present a majorobstacle to economic growth because they result in a lack of demand for the goods produced.
7 Furthermore, the benefits of Fordism were not extended equally to all, leading to significantdiscontent. David Harvey (1990: 137-138) writes, to begin with, Fordist wage bargaining wasconfined to certain sectors of the economy and certain nation states where stable demandgrowth could be matched by large-scale investment in mass-production technology Theresultant inequalities produced serious social tensions and strong social movements on the partof the excluded movements that were compounded by the way in which race, gender, andethnicity often determined who had access to privileged employment and who did not. Thisdiscontent became particularly volatile during the 1960s, manifested in popular uprisings within
98
-
8/14/2019 Red Hill Dissertation: Chapter 3
11/50
occurred throughout the 1940s, of which the longest and most volatile was the 1946
strike at Stelco, Hamiltons largest steel manufacturer. This strike lasted over three
months and involved a number of violent confrontations but, with substantial local
support from the public and sympathetic politicians such as trade unionist Sam
Lawrence (who served as mayor from 1943 to 1949), the workers successfully gained
concessions from Stelco (Weaver 1982). Building on Hamiltons long legacy of labour
organizing, these efforts had lasting impacts not only for local workers and workplaces
but on the political culture of the city, representing a challenge to the hegemony of
business interests and fostering a palpable sense of tension and mistrust between local
growth coalitions and their critics. As Bill Freeman (2001: 151) writes, to workers and
management alike, the results of the strike came to symbolize that the old autocratic
ways would not be tolerated anymore. People expected to be treated with dignity and
respect, and they expected to be paid a living wage.8
During the period of economic stability and vitality that followed the war, urban
infrastructures expanded rapidly in the West. Cities became nodal points within
networked systems for water, gas, electricity, road transportation, telephony, and radio
and television broadcasting. Urban planning supported mass production and mass
consumption by facilitating the expansion of these networks. Their development
the wealthier capitalist nations and anti-colonial struggles throughout the so-called Third World(Wallerstein 1989).
8 Nevertheless, as discussed in more detail below, labour politics in Hamilton would remaindivided between conservative and more radical wings throughout the later half of the century,presenting few subsequent challenges to dominant narratives of growth and progress(Freeman and Hewitt 1979).
99
-
8/14/2019 Red Hill Dissertation: Chapter 3
12/50
entailed the redirection and exploitation of natural processes, from water to electricity,
on an unprecedented scale. Cities had become deeply dependant on the extraction of
resources, and particularly fossil fuels, that were now made readily available as
everyday amenities and mass-produced commodities water from the tap, oil from the
pump, food from the supermarket shelf (Graham and Marvin 2001). The domestication
and control of ecological processes and materials through infrastructural networks
supported the modern notion of the domestic sphere as safe and autonomous, physically
and symbolically separating the good or processed nature available in the modern
home from the bad nature kept outside of its walls: a wild, unproductive or
contaminated nature identified with waste, disease and pollution (Kaika 2004).
Physically and conceptually distanced from agricultural activities and material
interaction with non-human nature, the modern citizen experienced nature primarily via
the mediated images of advertising and entertainment, within the aestheticized
landscapes of public parks and suburban lawns, and in the act of consumption (Wilson
1991). As William Cronon (1991: 340) observes, the ecological place of production
grew ever more remote from the economic point of consumption, making it harder and
harder to keep track of the true costs and consequences of any particular product. This
problem remains a serious one today but first became particularly pronounced in the
Fordist city, which intensified the conceptual and material divisions between urban life
and the basic conditions of survival (Keil and Graham 1998). The natural
environment was defined as a non-human realm entirely separate from both humanity
100
-
8/14/2019 Red Hill Dissertation: Chapter 3
13/50
and the urban (Cronon 1995), and valued primarily as the provider of resources and
absorber of wastes for economic activity (Daly and Cobb 1989).
The emergent consumer society was increasingly focused around the idealized,
gendered and racialized model of the nuclear family, the single-family dwelling, and the
modern suburb, which allowed those with the necessary means to live at a distance from
the perceived danger and congestion of inner cities while remaining connected to urban
life and workplaces via modern communications and transportation infrastructures such
as telephone and highway networks (Interrante 1983; Fishman 1990). Urban form was
increasingly organized around the spatial divisions between production and
consumption, exemplified by the rapid growth of suburbia (Rome 2001). Whereas urban
development in the previous century had tended to follow a star-shaped pattern along
the lines of streetcar tracks, the modern city was characterized by a multitude of
differentiated centers of activity (Hoover Commission, quoted in Interrante 1983: 91).
The means of dispersal -- the automobile -- had also been on hand since the1920s. But it took the rising economic power of individuals to appropriatespace for their own exclusive purposes through debt-financed homeownershipand debt-financed access to transport services (auto purchases as well ashighways), to create the "suburban solution" to the underconsumptionproblem. Though suburbanization had a long history, it marked post-warurbanization to an extraordinary degree. It meant the mobilization of effectivedemand through the total restructuring of space so as to make the consumptionof the products of the auto, oil, rubber, and construction industries a necessityrather than a luxury (Harvey 1989: 39).
The decentralized suburban home and the automobile became the focal points of
modern networked consumption and demand-side urbanization, supported by
101
-
8/14/2019 Red Hill Dissertation: Chapter 3
14/50
government subsidization and fed by an expanding industry for mass advertising,
market research, and consumer engineering (Lupton and Miller 1992).
The automobile and its associated infrastructure now played a pivotal role in the
political economy of Fordist urbanization, linking together the automobile industry with
oil production, construction, housing and real-estate, advertising, military industries,
and forms of spatial organization oriented around the consumption of consumer goods.
Freund and Martin (1993) refer to the auto-industrial complex that now links together
the interests of the private-sector highway lobbies (including the auto industry, oil
companies, trucking companies and road construction), business lobbies (including
housing and real-estate) and public sector highway and transportation departments.9
Sharing common networks of association and common frames of reference, these actors
work to shape and sustain the public discourses and political economic relationships
that make the private automobile such an indispensable commodity for many and such a
profitable commodity for some. The case of the Red Hill Creek Expressway provides a
particularly rich example of the efforts to perpetuate and challenge this automobile
hegemony.
Road to Progress: Early Proposals for the Red Hill Creek Expressway
9 Such linkages are particularly evident in Southern Ontario, where auto manufacturing andrelated industries play a very prominent political and economic role. Following the 1965 AutoPact between Canada and the United States, auto-manufacturing plants built by Ford andGeneral Motors became major customers for Hamiltons steel producers (Anderson 1987).
102
-
8/14/2019 Red Hill Dissertation: Chapter 3
15/50
By mid-century, the Red Hill Valley remained a primarily rural area at the eastern limits
of the city, though many of the farms and orchards had gradually vanished following the
purchase of land by the Hamilton Parks Board in 1929. The open and treeless expanse
of fields had gradually been covered over by patches of shrubby fields and forest a
secondary succession containing species such as Manitoba maple, white elm and grey
dogwood that was encouraged by the efforts of the Parks Board (Duncan 1998).
Wildlife remained relatively abundant and many local families continued to hunt in the
valley for food during the 1930s and 40s (Stewart-DeBreau and Nugent 1998). Housing
developments had appeared near the western edge but many fruit farms were still in
operation. Some recreational sites had been established, such as the Glendale Golf and
Country Club and the Hamilton Archery Club. During the 1930s, a small airport had
been constructed near the valley but gradually ceased operation as flights moved to the
larger Mount Hope airport on the escarpment. In the lower valley to the north, light
industrial developments were emerging near the estuary of the Creek, built atop
extensive wetlands that had been partially covered over by fill, removing the floodplain
in the process (Duncan 1998). Three old municipal landfill sites covered much of the
marshland near the Creek. In the early 1950s, these sites were capped and replaced by
a new site further upstream, the Upper Ottawa Street landfill for domestic, commercial
and industrial waste. To the south, the land above the escarpment was primarily
undeveloped, with scattered family farms. But the pressures of urban development were
increasing as Hamiltons manufacturing industries expanded and city planners worked
103
-
8/14/2019 Red Hill Dissertation: Chapter 3
16/50
to accommodate the growing demand for residential, commercial and industrial
development (Peace 1998).
As wartime restrictions on federal immigration were removed, more people began
relocating to Hamilton, including larger numbers from Eastern Europe and Italy. In
1949, the same year that Stelco launched a huge land extension into the harbour, the
City undertook its largest land annexation to date, expropriating extensive tracts of land
eastwards to the edge of the valley and southwards to accommodate the housing boom
on the escarpment. The following year, the Parks Board purchased over one hundred
acres of land within the valley, in anticipation of future development (Peace 1998). The
municipal government began investing in the extension of infrastructure to the
escarpment and gradual expansion of the handful of roadways connecting the upper and
lower city. The population on the escarpment grew from an estimated 25,000 in 1952 to
50,000 by the end of the decade. According to local historian John Weaver (1982: 175),
the process of residential expansion was typical of North American suburban sprawl
Industry was excluded and commercially zoned land was snapped up by shopping
plazas.
Pressure for the accommodation of increasing automobile traffic on local roadways,
particularly across the dividing line of the escarpment, grew over the decades to follow.
Already by the 1950s, city planners and politicians had begun considering the
construction of a roadway in the Red Hill Valley to provide a north-south linkage at the
eastern edge of the city. A traffic report commissioned by the municipality in 1956
advocated the creation of a network of one-way streets and a ring of expressways
104
-
8/14/2019 Red Hill Dissertation: Chapter 3
17/50
circling the city in order to increase capacity and improve the circulation of traffic
within, to and from Hamilton. A subsequent consultants report provided more detailed
cost estimates for the construction of expressways in the west end, through the Chedoke
Valley, and in the east end, through the Red Hill Valley, along with connections to the
provincial Queen Elizabeth Way.
The one-way network was instituted in 1956 and plans began to take shape for the
Chedoke Expressway, completed in 1963, but the need for the Red Hill route became
the subject of more extensive debate. Mayor Lloyd D. Jackson and others argued that
the highway would not be necessary for another decade and advocated the widening of
an existing escarpment crossing and arterial road, Highway 20, located several
kilometres east of the valley (Hamilton Spectator, June 11, 1957). Following further
reports and debate, City Council concluded that traffic levels did not warrant an
expressway in the valley and relinquished the lands that had been placed under
expropriation (Hamilton Spectator, May 8, 1958). Nevertheless, the City continued to
solicit proposals for an east-end expressway (Hamilton Spectator, June 22, 1959) as part
of the larger perimeter road system, which remained a central feature of subsequent
traffic planning documents such as the 1963Hamilton Area Transportation Study.
Following an influential consultation report, these new road networks became
embedded in Hamiltons 1967 Official Plan.
By this time, the valley had undergone some dramatic changes. Most of the
remaining farms had vanished and suburban development now encroached upon the
watershed of the Red Hill Creek from the east and south. By the late 1960s, the City of
105
-
8/14/2019 Red Hill Dissertation: Chapter 3
18/50
Hamilton had acquired over one thousand acres of land in the valley and the area was
seen as a convenient infrastructural corridor for servicing much of this new
development. Natural stream beds were replaced by storm and combined overflow
sewers that emptied directly into the creek and trunk sewer lines were buried
underground, requiring realignment of the creek bed at some locations and actually
further encouraging secondary secession along their lengths (Duncan 1998). Hydro lines
were erected through the valley and a gas pipeline was built in the southern end. Much
of the valley now remained little used except for day-use recreational activities and flora
and fauna flourished under these conditions, renaturalizing areas that had previously
been used for agriculture. Walking trails were established, including a portion of the
famous Bruce Trail, and the recreational value of the area was emphasized by the
Hamilton Region Conservation Authority in its recommendations for the acquisition of
more public land (Peace 1998).
Steel manufacturing flourished in the 1960s, particularly following the signing of
the 1965 Auto Pact between Canada and the United States, an agreement that
encouraged large-scale automobile production in Ontario by removing national tariffs
(Anderson 1987). The citys population expanded and the urban boundary was extended
further east and a great distance to the south to accommodate the rapid growth of
suburban development above the escarpment. By 1966, approximately 298,000 people
lived in the city, with almost one third on the mountain (Weaver 1982). As the
suburbs expanded, concern grew over the flight of people and businesses from the
downtown core. The situation would worsen over the coming decades as more affluent
106
-
8/14/2019 Red Hill Dissertation: Chapter 3
19/50
Hamiltonians gravitated towards the edges of the city (Taylor 1987), accompanied by
the development of large suburban shopping centres. With a local economy dominated
by manufacturing, the demand for downtown office space remained low but local
politicians began to champion large urban renewal projects to attract businesses and
people back to the core. These projects proved to be very controversial, involving wide-
scale disruption of local neighbourhoods and revealing troubling ties between local
politicians and the development industry that cast doubt on the prevailing notion of
urban planning as a matter of objective and apolitical engineering (Freeman and Hewitt
1979).10 These renewal projects and political scandals spurred the rise of very active
10 Further political controversy surrounded the Hamilton Harbour Commission during the1970s. The Commission, a three-member body composed of one municipal and two federalrepresentatives, was created in 1912 to manage the harbour and waterfront. Operating withrelatively little oversight from government, it had been instrumental in facilitating the expansionof industrial lands into the harbour, selling sections of the harbour to Stelco and Dofasco,Hamiltons largest steel producers, for very low prices. However, by the late 1960s, almost onethird of the harbour had been lost to infill and this practice was becoming increasingly
controversial as public concern mounted over the ecological impacts. A 1971 proposal forfurther expansion, arranged in secret between the Commission and the steel companies, eruptedinto controversy when the Hamilton and Region Conservation Authority protested against theirexclusion from the process and warned against the increases in water and air pollution thatwould result. The provincial government intervened to support the Conservation Authority, butthen soon reversed their position and sided with the Harbour Commission, allowing the infillingto proceed (Freeman and Hewitt 1979). Further west, Bayfront Village, a residentialdevelopment built on landfill from a recently constructed escarpment access, was halted in 1973due to public opposition and the emerging controversy around the linkages betweenCommission representatives, local development interests and political parties. Cityrepresentative Kenneth Elliot was eventually forced to resign as it became clear that he had usedhis position to promote the interests of businesses in which he was directly or indirectly
involved. Despite unexplained delays in the launch of an investigation by the RCMP, Ellliot waseventually charged and convicted for his activities as part of an investigation that revealedextensive and long-standing practices of price-fixing, bribery and kick-backs within theCanadian dredging industry and resulted in charges against numerous firms (Palango 1994). Theextent of involvement from federal representatives and politicians such as John Munro in theseillegal activities remains unclear but the system of local political patronage is well established(Jacek 1979). Further connections to organized crime, which flourished in Hamilton during the1950s, 60s and 70s, were suggested by the exposure of a massive money-laundering operationinvolving one of the former developers of Bayfront Village and other local businesses (Freeman
107
-
8/14/2019 Red Hill Dissertation: Chapter 3
20/50
built heritage and downtown revitalization groups, alongside and often sharing
membership with local environmentalist organizations. This political activity, which
centered around criticism of the seemingly close relationships between the development
industry and city hall, drew in part on Hamiltons rich history of labour activism and a
long-established political culture of opposition between industrial capitalists and
workers.
By the 1970s, concern about the wider impacts of suburbanization was growing
amongst local planners, politicians and the public at large. Plans for the perimeter road
were revived, alongside considerations for expanding bus service and developing a
rapid transit system. The City soon abandoned plans for an east-west highway in the
lower city due to the high costs of expropriating land in this now densely developed
area (Hamilton Spectator, February 20, 1970) but began purchasing land along the route
of the east-west Mountain Highway that was proposed to run along the southern edge
of the city limits, as an extension of the provincial Highway 403. In the effort to
demonstrate the need for the projects, planners emphasized the new housing
developments proposed for the east and west mountain, the expansion of the Hamilton
Civic Airport at Mount Hope, and the accommodation of traffic moving between the
provincial highways to the west and north of the city (Hamilton Spectator, March 22,
1972). Emphasis was also placed on linkage to the proposed Highway 6 running south
to Nanticoke, the site of new industrial developments during the 1970s that included a
and Hewitt 1979).
108
-
8/14/2019 Red Hill Dissertation: Chapter 3
21/50
nuclear plant and, much to the chagrin of many Hamiltonians, the future location of
Stelcos new primary steel making facility (Anderson 1987).11
The Provincial government agreed to provide 75% of the funding for the escarpment
highway and a Technical Advisory Committee (TAC) was created, composed of
municipal and provincial planners and engineers. City Council continued to support the
designation of the Red Hill valley as parkland and expressed concern about the negative
impacts of running a north-south link through the valley from the Mountain Highway to
the lakeshore but the province indicated hat they wished to provide funding for a single
project incorporating both of the roadways proposed in the 1963Hamilton Area
Transportation Study. As Jeffrey argues, with reference to internal memos and reports
from provincial and municipal staff, the Technical Advisory Committee was concerned
first and foremost with addressing the projected increases in automobile traffic and
regarded the Red Hill valley as the least expensive means, financially and politically, of
improving traffic circulation (Jeffrey, Ball and Henderson 1985).
Some local business interests, however, saw the highway as a stimulus for economic
growth, particularly within industries related to transportation, trucking, construction,
housing and real estate. As early as 1971, members of the Hamilton Automobile Club
collaborated with allies from the Hamilton Chamber of Commerce to create an Urban
Transportation Task Force charged with developing a coordinated philosophy
11 Further uproar was created by Stelcos decision to move its head offices to Toronto in 1968.This decision shook the confidence of local politicians, following in the wake of the closure orrelocation of some notable businesses, including the Studebaker car assembly plant in 1966(Freeman 2001).
109
-
8/14/2019 Red Hill Dissertation: Chapter 3
22/50
concerning the future of transportation needs in Hamilton and area (Urban
Transportation Task Force 1973: 1). In this document, produced for city councillors and
staff, the proposed highways are presented as an essential part of a perimeter system
which is vitally important to the future of Hamilton (ibid: 2), linking the escarpment
suburbs and the industrial waterfront, and attracting new businesses to greenfield
industrial parks on the escarpment. Rapid rail transit had become a prominent feature in
discussions about addressing the looming traffic crisis (Hamilton Spectator, April 4,
1973) but was dismissed by the Task Force as too costly and unrealistic in light of
the expressed preference of citizens for private transportation allegedly demonstrated
by rising levels of automobile registration (1973: 4). Council was advised to consider
carefully but not unreasonably overstress the place of transit and the factors affecting
ecology and environmental critiques were anticipated by their argument that the
highways would improve the environment by reducing traffic congestion on city
streets (ibid: 6).
Further support for the Red Hill route came from proponents of the Saltfleet
satellite city development that had been proposed for the rural lands on the escarpment,
adjacent to the valleys southeast limits. It is crucial to note that this development, at the
southern fringe of the nearby suburban town of Stoney Creek, was planned by the
province on lands owned by the Ontario Land Corporation12 and was one of a number of
12 The Ontario Land Corporation was a provincial agency that bought and sold land on behalf ofthe government. In 1993, the agency was renamed the Ontario Realty Corporation (ORC) andreformed as a public-private hybrid to manage land holdings and buildings. Since the 1970s, theagency has faced criticism for allegedly selling land to developers at very low prices. In 2000,charges were laid against two employees of the ORC and a private sector environmentalengineer for their alleged involvement in a land fraud scheme that involved bid rigging and
110
-
8/14/2019 Red Hill Dissertation: Chapter 3
23/50
suburban satellite cities in the Greater Toronto Area actively planned and promoted by
the provincial Conservative party during this period.13
The Province predicted that up to
75,000 people would be living in this new development by 1985 (Hamilton Spectator,
April 4, 1975). Although Highway 20 (also known as Centennial Parkway) was in equal
proximity to this proposed development, east-end politicians and local neighbourhood
groups such as the Centennial Parkway Ratepayers mobilized to oppose its use as a
north-south link, pointing to the substantial residential and commercial development
that now lined the road (Hamilton Spectator, June 5, 1974). Municipal and provincial
politicians from the east end of the city, including neighbourhood groups on Kenilworth
Avenue, a major east-end artery that was regarded as another possible route, made
similar efforts. A strong and diverse coalition in favour of the valley route had begun to
take shape, including neighbourhood associations, politicians and planners at the
municipal and provincial level, business organizations, land speculators and real-estate
developers, construction and transportation companies part of a larger pro-growth
regime of governmental and business interests that emphasized economic progress
through support for manufacturing industries, suburban development and roadway
financial kickbacks between the public and private sector. These individuals were found guiltyin 2007 (Toronto Star, October 6, 2007).
13 Many local and provincial politicians from the Stoney Creek area were staunch supporters of
the satellite city development (later named Heritage Green) and a north-south highway throughthe valley, thereby avoiding the expansion of Highway 20. One particularly influential politicianwas Gordon Dean, who served as the mayor of Stoney Creek and chair of the RegionalTransportation Committee during the 1970s and went on to become a provincial member ofparliament for the Progressive Conservative party in the 1980s. Controversy would latersurround rumours of a verbal agreement made in the late 1970s between Stoney Creekpoliticians and the Region of Hamilton-Wentworth that no improvements would be made toHighway 20 until an expressway was built in the valley (Stoney Creek News, May 6, 1998).
111
-
8/14/2019 Red Hill Dissertation: Chapter 3
24/50
networks.
The Technical Advisory Committee and traffic commissioner Ray Desjardins
continued to exert pressure on City Council, advising the city that a highway could co-
exist with existing or planned recreation and conservation facilities, particularly if
proper precautionary measures are taken during construction and proven environmental
protection features are incorporated in the design of the facility (City of Hamilton
Planning, Engineering and Traffic Technical Committee, quoted in Jeffrey et al. 1985:
216). Nevertheless, the Council remained opposed and on March 14, 1974, unanimously
adopted a resolution stating that this council make clear its intention to retain the
natural character of the Red Hill Creek Valley and to maintain permanently its present
natural state (quoted in Peace 1998: 227). In response, members of the Advisory
Committee warned that the province could withdraw funding for both highways and
that removal of the valley route from these plans might require a costly re-routing of the
Mountain Highway (Hamilton Spectator, August 21, 1974).
By the end of the year, the Committee had commissioned a report from the
provincial Ministry of Transportation and Communications, popularly known as the
Radbone Study, that compared four possible routes for the north-south highway in
terms of traffic analysis, environmental impact, engineering impacts and cost: one
running through the valley, one further west on Kenilworth Avenue, another further east
on Highway 20, and a fourth on Fruitland Road in the rural periphery much further east
(Figure 3.3). The study purported to demonstrate that the valley was quite the best
from the traffic and engineering standpoints, presenting a difficult trade-off between a
112
-
8/14/2019 Red Hill Dissertation: Chapter 3
25/50
unique natural feature versus the only cost-effective alternative that satisfies future
demands (Ministry of Transportation and Communications 1975: 42). Many
councillors denounced this report as an intimidation tactic that downplayed the long-
term financial, social and environmental costs of the Red Hill route and exaggerated the
costs of the alternatives (Hamilton Spectator, January 3, 1975). The Technical Advisory
Committee urged city councillors to allow more detailed analysis of all four routes but
the politicians soon voted 10 to 8 in favour of retaining the valley as parkland. The
Hamilton Spectatordeclared the Red Hill route a dead horse and advised politicians
to bury it and get on with plans for another route (February 27, 1975).
Figure 3.3: Red Hill Valley route, with alternate routes Kenilworth Avenue and
Highway 20 highlighted. Fruitland Road lies still further east.
113
-
8/14/2019 Red Hill Dissertation: Chapter 3
26/50
Support for City Councils position came from a growing coalition of local groups
and citizens inspired by the rise of environmentalism, along with many residents and
community groups living near the valley. The Hamilton Region Conservation Authority
steadfastly opposed an expressway in the valley, the only large tract of regional open
space in Hamilton east, emphasizing its value as a recreational site alongside its
benefits for wildlife and human health (Hamilton Spectator, August 31, 1973). Clear
Hamilton Of Pollution (CHOP), a grassroots environmentalist organization founded in
1969, presented further opposition. CHOP became very active in the early 1970s,
coordinating a local Federation of Environmental Groups that produced the first
inventory of natural areas in Hamilton in 1972. The following year, the group organized
114
-
8/14/2019 Red Hill Dissertation: Chapter 3
27/50
a public walk in the valley that included local councillors and engaged in public
education and lobbying, primarily through letter-writing and public meetings.
Composed to a large extent by predominantly middle-class citizens with a professional
or amateur interest in nature conservation, these groups had few connections to
Hamiltons labour unions and social justice groups at this time.
Environmentalists emphasized the ecological and recreational value of the valley as
one of the last natural areas in the city. Indeed, the creek was now the last remaining
unpaved creek flowing into Lake Ontario within the Hamilton region. These arguments
were given additional weight by the warnings of global environmental crisis presented
by theLimits to Growth report of 1973, concerns over the availability of oil and other
resources following the OPEC crisis, and successful public mobilizations against other
large-scale development projects in the Greater Toronto Area, including the cancellation
of Torontos Spadina Expressway in 1972.14 As in other North American cities (Rome
2001), urban environmentalism in Hamilton drew upon a number of ideological
currents, including conservation movements, wilderness preservation movements, the
growing science of ecology, urban heritage movements, more radical left politics
offering a broad critique of militarism, racism, sexism and consumerism, and more
14 In Toronto, the Spadina Expressway met with fierce public resistance, involving streetprotests, lobbying and the participation of luminaries such as Jane Jacobs and Marshall
McLuhan (Nowlan and Nowlan 1970). The Province of Ontario eventually intervened, withPremier William Davis declaring, if we are building a transportation system to serve theautomobile, the Spadina Expressway would be a good place to start. But if we are building atransportation system to serve people, the Spadina Expressway is a good place to stop" (quotedin Sewell, 1993). This statement has to be considered against the backdrop of the Provincesstrong support for suburban development during this period, through the activities of theOntario Land Corporation and provincially mediated federal subsidies for water, sewage andhighway infrastructure.
115
-
8/14/2019 Red Hill Dissertation: Chapter 3
28/50
socially conservative politics that sought to defend or rationalize those same social
relations and associated middle-class values. Combining these influences, local
environmentalists worked to mobilize citizens to action against air and water pollution,
the damaging of significant local ecosystems, and the proliferation of suburban
development on the urban fringe. In their opposition to the Red Hill Expressway, these
groups cast doubt on the privileged role of the car in urban transportation and advocated
public transit alternatives, while some conceded that further road expansion might be
necessary in less ecologically vital areas (Hamilton Spectator, July 3, 1973).
While City Councils commitment to protecting the valley received substantial public
support at this time (Hamilton Spectator, January 12, 1976), the pressure for councillors
to reconsider was building from multiple directions. Many politicians, city staff,
developers and local citizens were pushing for a new highway route, citing growing
traffic congestion in the east-end and the projected increases in population that would be
generated by the new developments now held up by Councils failure to specify a
route (Hamilton Spectator, April 14, 1975). However, all of the alternative routes
appeared problematic for the city due to the costs of land expropriation, road expansions
and/or the political resistance posed by local residents and businesses. Fruitland Road
was considered too far east and too costly, Kenilworth too heavily lined with
commercial and residential development, and Highway 20 too contentious due to the
level of opposition from local residents and politicians. This pressure was compounded
by the Provinces refusal to provide the promised funding for land acquisition costs
along the Mountain Highway until a north-south link was specified (Hamilton
116
-
8/14/2019 Red Hill Dissertation: Chapter 3
29/50
Spectator, April 17, 1975) and the growing chorus of protest from those landowners
along the route whose properties had been frozen (Hamilton Spectator, September 11,
1975).
Another layer of complexity had been added by the creation of the Regional
Municipality of Hamilton-Wentworth (hereafter referred to as the Region), one of a
number of two-tiered regional municipalities created by the provincial government in
1974 (Burghardt 1987). Many regarded this as a retreat from the governments earlier
commitment to regional planning and governance (Magnusson 1994; Frisken 2001).
The Regional Municipality of Hamilton-Wentworth quickly became a new political site
of contestation over the highway. Provincial staff urged the Region to consider the
Mountain-Red Hill roadways as part of a future regional road system (cf. internal
memo, dated May 2, 1974, and cited in Jeffery, Ball and Henderson 1985: 218). The
Regional Council had previously resolved to exclude the valley route but members of
the Regional staff soon began advocating that it be considered in future transportation
studies.15 The Province continued to make this same demand but the majority of
Hamiltons City Council continued to oppose them (Hamilton Spectator, January 21,
1976), culminating in the provinces ultimatum that the City either study the Red Hill
Creek access or face the annulment of the funding agreement with the Province,
15 In September, 1975, the Regions planning committee, under the direction of Stoney Creekmayor Gordon Dean, tabled a resolution urging the province to reject city councils request toremove the Red Hill route from the citys Official Plan but this resolution was narrowlydefeated (Hamilton Spectator, September 17, 1975).
117
-
8/14/2019 Red Hill Dissertation: Chapter 3
30/50
resulting in the loss of approximately $2 million for both the north-south and east-west
roadways, 25% of the estimated cost (Hamilton Spectator, March 18, 1976).
Pavers and Savers: Public Mobilization and Political Narratives
By this time, coalitions on both sides of the conflict were becoming more organized,
with clear lines of argument and common narratives that framed the issues, actors and
desired outcomes. Expressway proponents articulated agrowth and progress narrative
that resonated with many of the elements of the dominant industrial imaginary. The
highway was presented as a symbol of progress and a practical means of both
supporting industrial development and increasing the efficiency of traffic flows, while
the valley was presented as wasted and degraded space requiring the human
intervention of development to be improved. This narrative relied upon three central
political frames:
1) Urban Growth: Economic and population growth are represented as universally
beneficial, driven by competition for private sector development, and based
upon the transformation of wild or useless nature into productive resources
for the creation of wealth.
2) Freedom and Prosperity: Associated with individual prosperity, freedom of
(auto)mobility, reduced traffic congestion, and the safety and security of
residential neighbourhoods.
118
-
8/14/2019 Red Hill Dissertation: Chapter 3
31/50
3) Representative Democracy: According to which, democratic citizenship
essentially involves the periodic election of political representatives and optional
engagement in consultation processes. Good governance involves decision-
making that provides room for consultation but respects the will of the majority,
and that is free from the influence of political bias or special interests
opposing progress and development. The municipality is seen, first and
foremost, as a level of the state that focuses on the shared public interest of
economic development by assisting the efforts of the private sector.
Ideologically, this triple narrative drew upon liberal notions of individual freedom,
societal progress, political pluralism and the alleged privileging of general interests over
the particular. More conservative ideological elements are also evident in the emphasis
on the power of market forces as natural laws that provide the basis for social order,
the protection of suburban neighbourhoods and lifestyles, and the valorization of change
as steady, predictable growth that builds on previous traditions and strengths. While the
ideological currents of this narrative can be traced back through the history of Hamilton
politics, most notably to the growth machines and railroad politics of the nineteenth
century, it is clear that by the early 1970s, this storyline had already responded to the
rise of environmentalism by harkening back to earlier visions of infrastructure as a
synthesis of modern urbanism and nature, presenting the highway as a solution to traffic
congestion and ecological degradation rather than a cause. These arguments could rely
119
-
8/14/2019 Red Hill Dissertation: Chapter 3
32/50
in part on Hamiltons history of the productive transformation of nature, still
dramatically symbolized by the industrial skyline and the roadways cut into the
escarpment. Finally, as economic conditions became more precarious, great force would
be derived from reference to the transformation or improvement of nature as a means of
reclaiming Hamiltons status as a successful or world class city.
During this same period, environmentalist groups alternatively articulated a
conservation ecology narrative that drew upon the mixture of political influences
mentioned above, including the critique of productivism and consumerism presented by
the rise of New Left social movements, popular interpretations of ecological science,
and conservation and preservation movements, both urban and wilderness based. The
valley was represented as a both a refuge of nature and wilderness within an
increasingly urban area and as a symbol of a new city that would better integrate nature
with urbanization by preserving natural areas and shifting to post-Fordist forms of
economic development that were less polluting and less reliant upon factories, roadways
and automobiles. This narrative also utilized three basic political frames:
1) Urban Conservation: Suggesting a new approach to economic development and
societal progress that protects significant ecological areas and transition towards
industries, urban forms and transportation modes that reduce ecological damage.
120
-
8/14/2019 Red Hill Dissertation: Chapter 3
33/50
2) Health and Urban Nature: Emphasizing the importance of nature for human and
non-human health on a citywide scale, access to natural areas, more compact
urban development, and the reduction of air and water pollution.
3) Participatory Democracy: According to which, democratic citizenship involves
active engagement in municipal politics and decision-making processes, as well
as participation in the electoral process. Good governance involves decision-
making that provides room for public participation and democratic deliberation
of major planning issues. The municipality is seen, first and foremost, as the
level of the state at which citizens can and should participate most directly in
governance.
These opposing and overlapping narratives gradually became more prominent within
the local media, with articles, letters and editorials debating the future of urban
transportation and development in the city. Debate at city hall intensified as Jack
MacDonald replaced Mayor Victor Copps in the 1976 election, presenting himself as a
pro-business leader who would help Hamilton regain its status as the Ambitious City
through large-scale development projects such as the Red Hill Creek Expressway, which
he described as a fact of life (Hamilton Spectator, December 3, 1976). In response to
environmental critics, MacDonald, the Chamber of Commerce and others insisted that
the roadway could be designed to minimize its environmental impact on the valley
(Hamilton Spectator, July 9, 1975). The planners and engineers of the Technical
121
-
8/14/2019 Red Hill Dissertation: Chapter 3
34/50
Advisory Committee echoed this early modernist vision of the parkway as a means of
interacting with and appreciating nature (Hamilton Spectator, October 22, 1975) and
continued to pressure the Council. On April 20, 1976, the Committee proposed to turn
both highway projects over to the Region for a Regional Freeway Study in cooperation
with the provincial Ministry of Transportation and Communications.
This study was completed by July 25, 1977, and the following day City Council
resolved to allow consideration of all reasonable alternatives to the north-south
freeway, including the Red Hill valley. As Michael Jeffrey observes, the exact reasons
for this abrupt change in position remain unclear to this day, (Jeffrey, Ball and
Henderson 1985: 221) but it is clear that enormous political pressures were placed on
councillors by planning and engineering staff from multiple levels of government, in
addition to the sustained lobbying efforts of business associations, developers and
citizens. The municipal and provincial planners and engineers that composed the
Technical Advisory Committee appear to have played a particularly prominent role,
continually promoting the valley route despite the opposition from the City and
Regional Councils. Many of these same planners and engineers were selected to serve
on the working committee for a new Regional Freeway Study, along with
representatives from the Ministry of Transportation and Communications, the
Conservation Authority, the Niagara Escarpment Commission and DelCan consultants
(De Leuw Cather Canada Ltd). DelCan was the same consultation group that had been
involved in producing previous reports recommending the Red Hill route in 1963 and
1967. Charges of bias were also levelled against the steering committee for stacking
122
-
8/14/2019 Red Hill Dissertation: Chapter 3
35/50
the deck with politicians who were predisposed to the valley route and likely to
emphasize economic over environmental factors (Hamilton Spectator, November 9,
1977).
Local citizens opposed to the Red Hill route began to escalate their efforts, urged by
municipal and provincial politicians who warned that more vocal and effective
resistance, including the use of independent studies and experts, would be needed to
counter the efforts of big money promoting the road and the valley as the only viable
route (Hamilton Spectator, October 13, 1977). Save the Valley was formed in May 1979
by east-end residents and other citizens active in local environment groups. With a core
of roughly forty people and many hundreds of supporters, Save the Valley accompanied
lobbying tactics with a stronger focus on public education and debate that included
public forums, outdoor rallies and letter writing campaigns. The group quickly became
the strongest voice of resistance to the project and soon received endorsements from
politicians such as then Toronto Mayor John Sewell (Hamilton Spectator, June 22,
1979) and prominent environmental non-governmental organizations such as Pollution
Probe, Coalition on the Niagara Escarpment and the Federation of Ontario Naturalists.
While some advocated other routes for a north-south link, many activists and
politicians questioned whether any roadway was needed and argued that public transit
would be a more effective and less damaging means of addressing the problem of traffic
congestion. Emphasis was placed on the importance of reducing automobile use and
highway construction due to increasing air pollution, the loss of valuable land such as
the valley, and the phenomenon of induced traffic, whereby new roadway capacity
123
-
8/14/2019 Red Hill Dissertation: Chapter 3
36/50
provides short-term relief of congestion but leads to long-term increases in traffic
levels.16
Criticism was levelled against city planners for allowing new development to
occur before considering the transportation required to support it and for privileging the
automobile over other transportation modes (Hamilton Spectator, February 11, 1978).
Reflecting the widespread loss of faith in modernist planning and established political
authorities that had occurred throughout the 1960s and 70s (Wainwright 1994), critics
also denounced the decision-making process as one that excluded meaningful
participation from citizens and privileged business interests over all others (Hamilton
Spectator, June 18, 1979).
Such arguments were given credence by the Regions announcement of six possible
routes for the north-south link of the highway every one of which included at least a
portion of the road running through the Red Hill Valley (Hamilton Spectator, May 5,
1979). It was explained that the steering committee had selected these routes from an
original list of fifteen for a variety of reasons including technical and financial
feasibility, environmental concerns and the level of disruption to area residents (ibid,
May 16, 1979). Open houses were held to solicit public input on these six routes, while
activist groups mobilized to shape the debate by holding public meetings, conducting
public opinion polls and circulating petitions. These groups included the Centennial
Ratepayers Association, who voiced their opposition to the two routes that still involved
16 The phenomenon of induced traffic is now well documented by quantitative analyses (cf.DeCorla-Souza 2000; Cervero 2002; Ewing and Lichtenstein 2002). As Ewing and Lichtensteinnote, the related phenomena of induced development has received considerably less academicattention, due in part to the data requirements and complexity of the models needed for aquantitative analysis, but the literature is growing.
124
-
8/14/2019 Red Hill Dissertation: Chapter 3
37/50
portions of Highway 20 by appealing to the health and safety risks of traffic congestion
in the area, the lowering of property values accompanying the highway, the alleged
prioritization of human needs over those of wildlife, and alleged improvements in
aesthetics and accessibility that would be made to the valley by construction of the
highway (ibid, June 8, 1979).
These arguments were tied into the representation of the valley as a wasteland. Many
proponents of the Red Hill route described the valley as a dirty and polluted place, filled
with refuse and the smell of sewage in the words of one letter writer, it was a place
infested with snakes and rats, its nothing but garbage land (Hamilton Spectator, July
11, 1979). Implicitly, such descriptions referred to the northern end of the valley, where
overflowing storm sewers and public dumping had indeed contributed to pollution of
the creek and surrounding marshland. These conditions were usually presented as
evidence of the valleys degraded or dangerous quality and the lack of widespread
appreciation for this area, rather than being attributed to neglect on the part of the
municipal government. The highway project, envisioned as a carefully constructed and
aesthetically pleasing garden way, was presented as a way to enhance the area for the
public rather than destroy it (ibid, July 9, 1975) by cleaning up the valley and allowing
more people to enjoy the beauties of the Red Hill Creek area, albeit from the comfort
of their automobiles (ibid, June 16, 1979).
In contrast, others described the valley as a natural oasis in a heavily urbanized area.
Alderman Brian Hinkley, then of the most vocal critics of the Red Hill route, described
the valley as the last remaining natural area of woods and fields and quiet that exists in
125
-
8/14/2019 Red Hill Dissertation: Chapter 3
38/50
the Hamilton community (quoted inHamilton Spectator, December 27, 1978). These
representations tended to emphasize the natural and even wilderness qualities of the
valley and the need to conserve such increasingly scarce spaces within an urban
environment, rather than the rich history of human usage of the valley described earlier.
Talk of trade offs between the environment and economic growth was countered by
visions of the valley as an irreplaceable asset of steadily increasing value that should not
be sacrificed for immediate needs (ibid, July 14, 1979). This value was to be
measured in terms of recreation and respite from the urban environment, human health
and the tree-filled valleys role as Hamiltons lungs, and its ability to foster
appreciation and respect for nature (Figure 3.4).
Figure 3.4: Save the Valley lawn signs (Hamilton Spectator, July 9, 1979)
126
-
8/14/2019 Red Hill Dissertation: Chapter 3
39/50
These qualitative descriptions were given more quantitative support by the
Conservation Authoritys designation of the valley as one of twenty six
environmentally significant areas in the Hamilton region and a subsequent report to
the Regional steering committee which argued that the proposed highway would
effectively destroy the valley by increasing flood levels and erosion, polluting air,
water and soil, and removing wildlife habitat, including several rare species (June 8,
1979). In this same report, the Conservation Authority protested the committees
selection of a route that had been previously rejected by City Council and reminded the
committee that the city, the Conservation Authority, and the Niagara Escarpment
Commission must give their approval before construction can proceed (Hamilton
Spectator, June 8, 1979).
Nevertheless, the Region soon announced that Alternative Route 2 had been
selected as the best route for the roadways a four-lane arterial road running east-west
across the Mountain and a six-lane freeway running through the valley to the provincial
Queen Elizabeth highway.17 Members of the steering committee later claimed that the
Regions Chair, Anne Jones, had asked them to present only a single alternative route to
Regional Council (Hamilton Spectator, August 29, 1979). Charges of back room
politics were levelled by city councillors who claimed that the Region had failed to
provide them with up-to-date information (ibid, June 29, 1979), including the timing of
steering committee meetings (Mountain News, September 26, 1979). According to
17 Apparently without irony, theHamilton Spectatorannounced the selection of Alternative 2,from a list of six routes that allincluded the Red Hill Valley, with the headline Route acompromise solution (July 7, 1979).
127
-
8/14/2019 Red Hill Dissertation: Chapter 3
40/50
Alderman Brian Hinkley, a great deal of decision-making took place "in the
background... I've found there are just a few people on both councils who hold the reins
of power" (Hamilton Spectator, September 15, 1979).
Over three hundred people attended the Regional Council meeting on July 18, 1979.
Many demonstrated outside city hall, with opponents of the Red Hill route
outnumbering those in favour two to one (Figure 3.5). Inside, 25 of the 38 public
deputations to Council were in opposition. In addition to Save the Valley, which
submitted a petition of 9400 signatures, groups speaking against the highway included
east-end neighbourhood associations, the Hamilton and Region Conservation Authority,
the Federation of Environmental Groups, the McQuesten Community Association,
Hamilton Labour Council, Coalition on the Niagara Escarpment, and representatives of
the New Democratic and Liberal parties. Those in favour of the highway included the
Hamilton Chamber of Commerce, Hamilton Homebuilders Association, Hamilton
Trucking Association, the Metropolitan Hamilton Real Estate Board, Carma
Developments, Di Cenzo Construction, Sunshine Homes Ltd., and a number of local
ratepayers groups (Hamilton Spectator, July 19, 1979).
Figure 3.5: Savers and Pavers outside City Hall (Hamilton Spectator, July 19,
1979)
128
-
8/14/2019 Red Hill Dissertation: Chapter 3
41/50
Like much of the public debate in the preceding months, many of the presentations
focused on issues of economic growth, the nature and location of future development,
and the value of the highway as an economic stimulus. Critics of the project pointed to
studies that predicted more dramatic growth in the service sector rather than the
industrial sector, with most of these jobs more likely to be located in the downtown core
of the city rather than the escarpment, waterfront, and east-end regions linked together
by the proposed expressway (Hamilton Spectator, February 11, 1978). These
predictions appeared to cast doubt on the prominent argument that the highway was
vital to economic growth in the region, as did statements from Stelco and Dofasco, the
citys largest steel companies, that the highway will perhaps enhance the attractiveness
of the region for new industry but would be of little direct benefit to them as the
129
-
8/14/2019 Red Hill Dissertation: Chapter 3
42/50
small proportion of their shipping done by truck made use of the nearby Skyway Bridge
and Queen Elizabeth Way (Hamilton Spectator, July 9, 1979).
Pointing to the predominance of real estate, construction and trucking companies
supporting the road, opponents argued that the project would only benefit the
development industry (ibid). Criticizing Hamiltons legacy of expensive and
controversial development projects, they called for a more cautious approach to
economic development that would focus on supporting existing industries, encourage a
more balanced mix of public transit and roadways, and allow for the preservation of
parkland. This shift was frequently characterized as a turn away from the pursuit of
growth at any cost and reckless economic expansion towards an emphasis on
quality of life for present and future generations, suggesting but not articulating the
more radical critiques of capitalism and modernity that were being expressed by the
resurgent New Left movements of the time. In the effort to undermine the common
sense identification of economic growth with progress and prosperity, John Ellis and
other supporters of Save the Valley were fond of quoting Arthur Cordells statement that
growth for growths sake is the philosophy of a cancer cell (Hamilton Spectator, July
14, 1979).
For proponents of the road, the imminent crisis was primarily an economic one, with
a clear choice to be made: build the highway to sustain economic growth or face
stagnation and lost jobs. Just as the arguments of local environmentalists were given
support by wider critiques of modernist urban planning and dire warnings of resource
depletion and environmental crisis, arguments in favour of the project were bolstered by
130
-
8/14/2019 Red Hill Dissertation: Chapter 3
43/50
fears of economic decline emanating from political and financial instability during the
early 1970s. During this period, the crisis of stagflation (stagnant economic growth,
coupled with the inflation of prices and widespread unemployment) was compounded
by widespread urban unrest and the demands of increasingly well-organized groups that
had been marginalized during the Fordist period, including civil-rights, feminist and
student movements (Castells 1983). Combined with the first stirrings of the
decentralization and outsourcing of manufacturing work to smaller firms in the Third
World, these changes increased concern about the future of economic growth and
contributed to a political climate in which business interests began to push more
vigorously for the roll back of the constraints on profit presented by labour demands,
taxation and various governmental regulations and social programs (Peck and Tickell
2002).18 Amidst this fear of imminent recession, growing unemployment and rising
property taxes (HamiltonSpectator, August 30, 1979),19 local growth coalitions
presented the Red Hill Creek Expressway as a means of supporting Hamiltons
manufacturing sector by decreasing commute times, improving transportation
18 Some commentators refer to this period as the crisis of Fordism a gradual but dramaticshift away from the economic policies, political compromises and institutionalized practices thatfacilitated stable economic growth during the post-war period (Amin 1994). This shift is oftenattributed to the rising costs of fixed capital (machinery and buildings) and the demands madeby increasingly well-organized workers movements, leading to a loss of productivity and
profitability in the leading capitalist nations and the subsequent trend towards removal of theregulations and constraints on profit-making imposed by Keynesian economic policies.
19 It is interesting to note that this editorial is titled Not Just a Freeway, emphasizing theanticipated benefits of the road for attracting and retaining industrial and commercialdevelopment. As discussed in chapter 5, planners in the City of Hamilton later promoted thehighway as more than just a road in the effort to highlight ecological restoration efforts in thevalley.
131
-
8/14/2019 Red Hill Dissertation: Chapter 3
44/50
connections to areas of industrial growth such as Nanticoke, facilitating the
development of industrial land on the escarpment, and providing new jobs (Hamilton
Spectator, July 19, 1979).
Following these deputations, City Council prepared to vote on the matter and citizens
continued to mobilize. Members of the provincial Liberal and NDP parties voiced their
opposition and criticized Conservative support for the project (Mountain News, August
22, 1979), while others gathered petitions and conducted polls.20 Just prior to the
Council vote, Save the Valley presented the city with 2000 more signed petitions later
reaching a total of 13,000 signatures, in contrast to the 1619 signatures presented by
three ratepayers groups the following month (Mountain News, November 7, 1979).
Nevertheless, Alternative 2 was endorsed by City Council in a narrow vote of 8 to 7
on August 28, 1979. Regional Council gave their final approval the following month.
The dominant narrative of economic growth vs. environmental recreation was evoked
in Regional Chair Anne Jones concluding statement: Its nice to sit in the sun, but its
not nice to sit in the sun hungry (Hamilton Spectator, September 19, 1979). Editors
from theHamilton Spectatorapplauded the decision and declared, "rejecting the Red
Hill proposal would really have amounted to an outright vote of non-confidence in the
entire Hamilton-Wentworth region, its future, survival, growth and industrial
20 A poll of residents of ward 5, where the valley is located, found 63% of respondents wereopposed to a highway through the valley (Hamilton Spectator, September 15, 1979). This pollwas sponsored by the McQuesten Community Association, a group critical of the project. Anearlier poll of 900 residents sponsored by east-end NDP politician Bob MacKenzie found 49.6%opposed to the valley route, 31.6% in favour, and 18.8% with no opinion (Hamilton Spectator,May 17, 1979). Curiously, the by-line of this article reads: Fewer than half of east endresidents surveyed are opposed.
132
-
8/14/2019 Red Hill Dissertation: Chapter 3
45/50
development. Council members recognized that and voted - responsibility in the
interests of the entire region" (September 20, 1979).
In the effort to convince others that the project was essential for both economic
growth and the alleviation of present and future traffic congestion, proponents appealed
to well-established notions of highways as emblems and drivers of progress and
development collective goods that benefit all citizens by increasing urban
(auto)mobility. These benefits are spelled out in the Summary Report of the Regions
Mountain East-West and North-South Corridor Study, which argues that highways
concentrate the movement of traffic on major arteries to protect the integrityand living amenities within the residential neighbourhoods make it possiblefor families to live in a reasonably dispersed residential environment, and toseek employment freely within the metropolitan area (and) promote thegrowth and development of the community by improving the movement ofgoods and services (Region of Hamilton-Wentworth 1979: ii).
Here, the increased freedom of mobility for people, goods and services provided by
highway transportation is presented as a means of preserving quality of life, while
contributing to the overall growth and development of the community. This, like the
references to vitality and social growth from the same document, evokes wider
notions of progress while implying that these benefits are either synonymous with or
produced by economic growth.
Logan and Molotch describe this as an appeal to value free development,
frequently utilized by growth coalitions to promote economic expansion and realize
financial gains. According to this argument, growth brings jobs, expands the tax base,
and pays for urban services. City governments are thus wise to do what they can to
133
-
8/14/2019 Red Hill Dissertation: Chapter 3
46/50
attract investors (Logan and Molotch 1987: 33). Businesses and visionary
entrepreneurs are characterized as the principal architects of urban development, while
the role of government is presented as facilitating the growth of private investment for
the ostensible benefit of all citizens. Expressway proponent and Alderman Ian Stout
captured this vision of local government with his assertion that highways are built not
for people but to provide for the needs of industry which in turn provides people with
jobs (Hamilton Spectator, February 11, 1978). At the same time, planning documents
such as theRegional Corridor Study claim that the demand for the expansion of
roadway facilities stems directly from the publics preference for low-density single
family accommodation and the publics wish for greater freedom of mobility,
suggesting that government is simply responding to the needs and desires of citizens
rather than those of business (Region of Hamilton Wentworth 1979: i).
Urban development projects are value-free in so far as they considered universally
beneficial and therefore apolitical a matter for objective expert management and the
application of market forces rather than political debate. In this view, the primary role of
the citizen is to elect political representatives. Public participation in decision-making is
limited to the avenues of election, lobbying, and limited consultation, based on a
pluralist ideal of liberal democracy in which each citizen is given an equal
opportunity to influence the state (Judge 1995). Engagement in overt political activity
outside these boundaries is frequently described as an affront to the democratic
process and politics itself is represented as a form of interf