The City of Winnipeg was incorporated in 1873 by a charter granted by the legislature of Manitoba. At incorporation, the City established a committee system of government – while Council was the governing body for the City, it was in committee that civic policies were formed and executed. The initial task for the first and all subsequent Councils was to strike standing committees for the Council year. In addition to standing committees, Council established special committees to investigate and manage various projects, issues and questions placed before the City. Special committees were typically struck by a Council motion that outlined committee composition and responsibilities.

The Special Committee on Amalgamation was appointed by Council on August 19, 1918 to “consider and report on the question of adjusting, re-arranging and amalgamating the various departments of City Offices”. In order to complete this task, the Committee requested statements from the City’s twenty-three administrative departments showing the functions and duties of the department and the organization of staff (including the name, position, salary and responsibilities of each staff member). Statements were not requested for the Fire Department or the Light and Power Department. The Committee’s final report was accepted by Council in December of 1918 and referred to the City Solicitor to draft requisite legislation. The Special Committee on Amalgamation had five members and adjourned following submission of its report to Council: Controllers Wallace and Puttee and Aldermen Fowler, Fisher and Vopni.