{"id":59873,"date":"2019-02-13T08:00:31","date_gmt":"2019-02-13T13:00:31","guid":{"rendered":"http:\/\/spacing.ca\/toronto\/?p=59873"},"modified":"2019-02-13T12:04:12","modified_gmt":"2019-02-13T17:04:12","slug":"doug-fords-ttc-subway-upload-and-margaret-thatchers-cautionary-tale","status":"publish","type":"post","link":"https:\/\/spacing.ca\/toronto\/2019\/02\/13\/doug-fords-ttc-subway-upload-and-margaret-thatchers-cautionary-tale\/","title":{"rendered":"Doug Ford’s TTC subway upload and Margaret Thatcher’s cautionary tale"},"content":{"rendered":"

As the province contemplates major structural change to Toronto’s transit system, I want to offer London’s rocky history with transit governance as a cautionary tale.<\/p>\n

It is a favourite pastime in some transit circles to compare Toronto to London. For example, John Tory has compared his SmartTrack plan<\/a> to the London Crossrail project, and even made a special trip to London on this premise.<\/p>\n

He wasn\u2019t referring to the fact that Crossrail is at least two and a half years behind schedule so far, or that it\u2019s been refinanced several times and is now \u00a32 billion over budget, or that he thinks SmartTrack\u2019s relative handful of potential riders compares to a line that will carry 1.5 million additional riders.<\/p>\n

It is true they are both rail projects. Although, if we are being precise, SmartTrack is a station project, not a rail project.<\/p>\n

I digress.<\/p>\n

One area in which I think Toronto should aspire to be like London is in its transit agency, Transport for London (TfL). I\u2019ve written elsewhere<\/a> about how I admire its comprehensive oversight of mobility, and its ability to regulate and coordinate not just trains and buses, but cars, taxis, cycling and the pedestrian realm.<\/p>\n

More than that, however, because TfL is an agency of the Greater London Authority, TfL is a good solution to the complexity of coordinating mobility across many jurisdictions within a metropolitan area the size of Greater London.<\/p>\n

We are moving in the opposite direction. Metrolinx is not TfL. The subway upload will not create anything like TfL. Rather, they are the disaster that preceded it: Margaret Thatcher\u2019s London Regional Transport (LRT).<\/p>\n

Margaret Thatcher dissolves London Council & creates London Regional Transport<\/strong><\/p>\n

Thatcher created the LRT organization in 1984, replacing the London Transport Executive, an agency of the Greater London Council since 1970. The LTE had been made up of local government agencies, which were severely underfunded by the central government.<\/p>\n

The new LRT was a state-owned agency directly overseen by the Secretary of State for Transport. The explicit goals of uploading London transit to the central state were cost reduction and privatization. In 1985, the system split the subway and the buses into separate entities under the umbrella of LRT as a holding company.<\/p>\n

The upload of London\u2019s transport was followed by the Local Government Act of 1985, which demolished the Greater London Council, reducing local government in the London region to its boroughs. Sound familiar?<\/p>\n

Funny how they used the word \u201cregional\u201d in the name of the new transport agency, in the same moment they eliminated the \u201cregional\u201d government for the same area. The \u201cLondon region\u201d became a free-form economic and transportation space lacking clear borders, no longer a political jurisdiction with the capacity to govern itself.<\/p>\n

The upload led to tragedy<\/strong><\/p>\n

Thatcher\u2019s central government did not take good care of their new baby. According to Alex Williams, TfL\u2019s current Director of City Planning, \u201cThe tragedy of the King\u2019s Cross fire, in 1987, which killed 31 people and injured 100 more, brought home to everyone the extent to which a significant part of London\u2019s transport network had become obsolete, dirty and unloved.\u201d<\/p>\n

Desmond Fennell led the formal investigation into the fire. His report (Investigation into the King\u2019s Cross Underground Fire<\/em>, Department of Transport, 21 October 1988) supports Williams\u2019 present-day comment. The report noted, \u201cIt is apparent from the evidence given by the Chairman that whereas financial matters, namely productivity and budgeting were strictly monitored safety was not strictly monitored.\u201d (p. 27) It is fair to say that Fennell was not impressed with the agency\u2019s management: \u201cIt may be an indication of the compartmental approach to management within London Underground that no up-to-date or complete chart showing the level of responsibility at which decisions were being taken was available.\u201d (p. 34)<\/p>\n

In 1992, the LRT started privatizing the bus services. Competition led to unethical, even criminal behavior on the part of bus companies, who increased congestion and endangered passenger safety in their battle to win ridership. (In deregulated areas outside London where ridership is lower and there hasn\u2019t been competition, there have been fare increases and reductions in service, \u00e0 la Greyhound.)<\/p>\n

Most importantly, riders lost out: connections were far from seamless and the system as a whole was less reliable.<\/p>\n

One legacy of privatization is that today London has 33 different bus operators, but they are all regulated by TfL. One important thing they insist on (are you listening, Metrolinx? I\u2019m making a point about the Crosstown here) is that the buses have the same livery. To the rider, a London bus is a London bus and it\u2019s all one system.<\/p>\n

Now, tell me again why we are so stymied by 14 different local transit agencies? Because there is no formal process for coordination. The province could step in and impose something, but it makes no sense for the province to regulate the fare structures and routes of the local transit agencies of the GTHA.<\/p>\n

However, it makes a lot of sense for a metropolitan-level organization, with representation from the municipalities and their transit agencies in the GTHA, to do that. Get the people who need to coordinate with each other around the same table–just as 13 municipalities in the Edmonton<\/a> metropolitan area recently decided to do. Indeed, it\u2019s what most metropolitan regions in Canada and the US do.<\/p>\n

Those who study integration will tell you that it cannot be imposed successfully from on high. Research by Charles Rivasplata, a senior transportation planner with the San Francisco MTA, has shown that “the integration of transit is more easily achieved where operators sense that authorities want to engage in horizontal integration and do not have a hidden agenda.\u201d<\/p>\n

As a transit agency, the TTC is a model for the region and could be at the heart of a new group in the GTHA. Instead, get ready for an onslaught of \u201cthe TTC is a mess\u201d messaging and how it can\u2019t build or plan or maintain its system, as if the problem is the city and not because it\u2019s the least-subsized transit agency in Canada or the United States (see chart below).<\/p>\n

TfL receives 40% of revenue from fares, not 70% like the TTC does. As in most European cities, central government funding comprises a significant portion (23%) of the TfL operations budget (sadly, this has just been eliminated).<\/p>\n

 <\/p>\n

\"\"<\/p>\n

Source: CodeRedTO Mixed Signals report, November 2018, available at CodeRedTO.com<\/em><\/p>\n

While we\u2019re at it, let\u2019s pretend infrastructure megaprojects haven\u2019t gone over schedule and over budget while under-delivering on benefits on every kind of project, public-built or private-built, in every country, all over the world, for at least the last 50 years. Entire books have been written on megaprojects and risk.<\/p>\n

TfL is responsible for the Crossrail project, so clearly metropolitan oversight is not a magic wand for megaprojects. But let\u2019s not pretend, either, that another level of government will do better. There is zero evidence of that, and the list of provincial or Metrolinx\u2019 mismanaged projects is long.<\/p>\n

What was at issue with the UK\u2019s LRT and what is at issue in the proposed upload is not who pays; it\u2019s who makes the decision. Thatcher intentionally removed the London region\u2019s ability to act as a region, to make decisions for itself. Metropolitan transit governance is about democracy. Capital can come from the province or the federal government, among other sources; the decision-making should belong to those who live with and are accountable to those who use the system on a day-to-day basis.<\/p>\n

It isn’t “regional integration” to disassemble the TTC and expand an overloaded subway line into another city without giving Toronto a say.<\/p>\n

The province has adopted the line that the TTC is an important \u201cregional transit service.\u201d The TTC isn\u2019t regional transit; it\u2019s the City of Toronto\u2019s local transit. One might have made a case for the TTC as regional transit as late as the early 1990s under the old Metro system of government, but the province made that megacity bed and now it has to lie in it.<\/p>\n

Local control matters<\/strong><\/p>\n

Why does it matter who decides? As Williams says, \u201cTransport is not an end in itself. Rather, it is a key element in creating fairer, greener, healthier and more prosperous cities.\u201d That\u2019s what city governments do, too. Good transit planning creates equal opportunity and access for all citizens. Public transit is about social equity and justice.<\/p>\n

After a local referendum on the question in 1998 (72% in favour), in 1999 the UK Parliament passed the Greater London Authority Act<\/em> as part of a program of, in the words of then-Prime Minister Tony Blair \u201cthe decentralisation of power and the granting to our citizens of greater rights to hold government to account.\u201d With the Greater London Authority came the London Assembly, the Mayor of London, and TfL.<\/p>\n

Tellingly, the Crossrail project couldn\u2019t get off the ground until the Greater London Authority and TfL came into existence. The national government couldn’t manage it through British Rail, because they were in the midst of privatizing it, and the many boroughs had no way to coordinate and mediate their different interests. To build Crossrail, they created a separate entity, initially co-owned by TfL and the UK Department of Transport, and then transferred full ownership to TfL. Cooperation!<\/p>\n

Thatcher’s upload of London transport was a setback for both transit expansion and the maintenance of good service, and it undermined local democracy. It isn’t the path we want to take.<\/p>\n

For those of us absorbed by questions of transit planning and governance, it\u2019s interesting to have an opportunity to reimagine the whole system, and figure out the most effective, most productive and most equitable way to do things. These days, there are formal statements circulating and organized events to debate the elements of transportation financing and governance.<\/p>\n

It is not yet clear that this provincial government is inviting such a conversation. Because that conversation would lead straight to discussing what even constitutes a \u201cregion\u201d and how should it be governed. That conversation would be grounded in serious discussions of democratic practices. That conversation would include discussion of more authority for the City of Toronto and other GTHA municipalities, and more weight to the TTC within any regional authority, whose ridership constitutes over 80% of all public transit ridership in the region. That conversation would prioritize figuring out how to move the greatest number of people, not the most comfortable, wealthy people.<\/p>\n

The upload proposal is not that conversation. Hopefully, the city’s discussions with the province consider more productive ways forward. Until then, we are merely spinning our wheels within a Thatcherite retake that demonstrates not the slightest interest in equity, justice or good governance.<\/p>\n

 <\/p>\n

 <\/p>\n","protected":false},"excerpt":{"rendered":"

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