ORGANIZATION OF HIGHER EDUCATION TOR ’ .
IMPROVED ACCESS- EQUITY AND SPATIAL ,

JUSTICE IN PRIMARY RESOURCE REGIONS: THE .

CASE OF NORTHERNONTARIO, CANADA ] ~ ,

Dissertation for the Degree of Ph. DQ
MICHIGAN STATE UNIVERSITY 1
JAMES KENNETH McLARTY
1979

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ABSTRACT
ORGANIZATION OF HIGHER EDUCATION FOR IMPROVED

ACCESS-EQUITY AND SPATIAL JUSTICE IN PRIMARY RESOURCE REGIONS:
THE CASE OF NORTHERN ONTARIO, CANADA

by

James Kenneth McLarty

The study represents culmination, in structured format, of a
longstanding concern with a problem whose content is higher education
and whose dimensions are geographic--more specifically, spatial. Social-
ly, extension of higher education has long been the subject of much
academic attention, and has occurred largely within the metropolitan
heartland. Spatially, extension of higher education introduces the con-
text of what are herein termed Primary Resource Regions. These occur
universally. The case of Northern Ontario, Canada, is here examined
specifically.

Recent literature reports occurrence of access-inequity and spatial
injustice as problems central to such regions. This study is intended
to add to examination of these problems as they apply to higher educa-
tion for the Primary Resource Region of Ontario. Its significance is
viewed as its being (1) an addition to a relatively recent attempt to
fill a void in academic inquiry, and (2) a contribution to such addition
from a perspective called for in the literature--an internal perspective
which, though subjective, is essential in having its sensitivity added
to assessment of regional need. Moreoever, just as Primary Resource
Regions are universal in occurrence, parts of solutions to their higher

education problems may well have universal applicability.

James Kenneth McLarty

Various institutional and government-commissioned studies emerge
from experience with the above spatially-related problems. In methodo-
logical literature, a model/systems approach to planning for solution
to such problems is advocated.

Regional higher education experience has encbmpassed problems re-
sulting in a present largely dysfunctional or 'nbn'system of higher
education in Northern Ontario. Yet, an effective higher education
system is both a component of and an instrument toward effective region-
al development. Effective regional development has undergone transition
from 'economic-quantitative' to 'people—qualitative' orientation.

Assuming acceptance of these realities, study content is directed
from (1) merging the geographic and higher education conditions under-
lying the problem(s) as applied to the study region, to (2) viewing the
problem-dimensions for the study region, to (3) placing higher educa-
tion into the regional development context, to (4) placing potentials
for improved organization within a regionally relevant framework, to
(5) offering a model (with underlying constructs) whose application may
be useful as the spatial component of a solution aimed at improving
higher education organization for the region.

Should the model be worthy of consideration for adaptation and
application, such application must be nurtured by long-term commitment
and support. This must come from government and the established uni-
versity system, as well as from the public at large, and be directed to

the idea of a system aimed at access-equity and spatial justice.

ORGANIZATION OF HIGHER EDUCATION FOR IMPROVED
ACCESS-EQUITY AND SPATIAL JUSTICE IN PRIMARY RESOURCE REGIONS:
THE CASE OF NORTHERN ONTARIO, CANADA

By

James Kenneth McLarty

A DISSERTATION

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

DOCTOR OF PHILOSOPHY

Department of Administration and Higher Education

1979

Copyright by
JAMES KENNETH McLARTY
1979

DEDICATED WITH GRATITUDE

To my parents, Alex and Etta McLarty (Posthumously) for
the gifts of

Life, Potentials, and Love for Learning and for Humanity

To my Brothers and Sister
Jean, Grant, Keith
for giving

Constant Loving Encouragement

To My Dear Wife
RHONA
And Our Precious Children,
JOANNE, CAROLYN AND BLAIR
for

Sustaining Love and Support

and
To Chosen Family, Friends, Advisors, Teachers and Colleagues;

for Caring.

ii

ACKNOWLEDGMENTS

Any attempt to include all those deserving specific mention invites
exclusion. Some have assisted, encouraged, and criticized constructively
from the initial stages. As advisors, these have earned my lasting re-
spect and gratitude. They are:

Dr. Walter F. Johnson, who is widely known as a caring
teacher, motivating advisor, and thorough scholar. He,
along with his gracious wife, Mary Jane, have become to
many, warm and valued friends. I have become thankful
for the opportunity to be included in that group over
the past three years.

Dr. Richard L. Featherstone, who possesses the gift of
cultivating respect and admiration among all those he
encounters. He is a care and compassionate man and a
friend.

Dr. Howard Hickey who is a spontaneous, sensitive and
dedicated teacher and scholar. His keen insight into
the real meaning of 'community' has opened new perspec-
tives.

Dr. Gary Manson who has performed the rather difficult
role of 'outside'advisor with continuing concern and
constant availability. His help has been appreciated
sincerely.

Dr. Vandel C. Johnson, Departmental Chairman, and members of the
Department of Administration and Higher Education faculty and staff,
have provided a friendly and supportive environment within my 1978—79
year. They have made the year a stimulating, demanding and rewarding
one. .

My graduate colleagues, whose friendship has been important to me,
are numerous. With apologies to the others, I ask that Carol Hopper, Al
Smith, Ralph Weeks, George Wallman and Don Moore may represent them.

I am indebted to Algoma University College, Sault Ste. Marie,
Ontario, Canada, for making possible the sabbatical leave during which
the study completion has been achieved.

I trust I will be able to compensate for the unselfish sacrifices
of my family during this time.

The laziest, the stupidest, the wildest
student takes away with him from college,
often unconsciously, noble, sweet and.
brilliant ideas and phrases . . .

Truly, the young man fresh from college,
who has not permitted his body to become

a slave to his mind, is among the happiest
of mortals.

1. Allen Jack, "The Academy

and the Grove in Canada",
(1878).

Much has been recorded about the concern for those denied the
right to be among the happiest of mortals' for reasons of SOCIAL sepa-
ration. The present study is undertaken in the interests of those who

face equally unjust deprivation for reasons of SPATIAL separation.

iv

PREAMBLE

It should be understood clearly at the outset that successful
organization of higher education for optimum delivery and program for

the Primary Resource Region, as dealt with herein, does ngt_have the

prerequisite of

(1) obliging additional qualified candidates to remain
for postsecondary study in the region

or
(2) persuading experienced, highly qualified, and

recognized faculty to leave the chosen metro-
politan campus to serve in regional institutions.

Rather, the goal would be achieved in a situation marked by equity
of access to opportunity for those who wish to study and remain/become
resident within the Primary Resource Region, instructed by those who

choose to reside and profess within that region.

It should be noted, in addition, that the topic addressed, with
.all_its dimensions, is too broad for treatment within the scope of a
doctoral dissertation. The intent has been to identify a variety of
related research areas which should be deserving of more detailed ex-

amination by educational and geographic researchers.

 

CHAPTER

CHAPTER
A.

B.
CHAPTER

CHAPTER

TABLE OF CONTENTS

I - INTRODUCTION

1. The Problem

2. Scope and Organization of the Study

3. Aim of the Study

4. Research Interest

5. Definition of Terms

6. Methodology

II - BACKGROUND OF THE PROBLEM

GEOGRAPHIC BACKGROUND

1. Physical Geographic Background

2. Human Geographic Background

RELEVANT HISTORICAL HIGHER EDUCATION BACKGROUND
III - A REVIEW OF REPRESENTATIVE LITERATURE

1. Non Theme-Specific Literature

2. Transitional Literature

3. Theme-Specific Literature

4. Documentary Literature

5. Methodological Literature

IV - THE OPERATIONS PROBLEM: REGIONAL EXPERIENCE IN

HIGHER EDUCATION PROGRAM AND DELIVERY

1 Problems in Form

2. Problems in Function
3. Problems in Perception
4 The Non-System

CHAPTER V - THE IMPORTANCE OF HIGHER EDUCATION TO REGIONAL

A.

B.

DEVELOPMENT
TRADITIONAL VIEWS

1. External
2. Internal

CONTEMPORARY VIEWS

1. External
2. Internal

vi

36

36
38
4O
41

44

45

45
49

51
52

CHAPTER VI - SELECTED POTENTIALS FOR IMPROVED ORGANIZATION:

A FRAMEWORK '60
1. Spatial Constraints/Liabilities 63
2. Spatial Opportunities/Assets 64
3. Extent to Which Items Under (1) are Convertible
to (2) 66
4. Assumptions Made 68
5. Degree of Desire for Reorganization and Restructuring 69
6. Time Frame for Reorganization and Restructuring 7O
7. Logic of Program Exclusivity/Sharing . 7O
8. Contribution to Social Well-Being 72
9. Available Benefits from Past Experience 72
10. Currently Expressed Principles of Higher Education 73
11. The Practice of Politics of the Possible 75
12. Quantitative to Qualitative Transition in Values 75
13. The Centralization/Decentralization Debate 76
14. Technological Assets/Liabilities 77
CHAPTER VII - THE PROPOSED MODEL AND UNDERLYING CONSTRUCTS 80
A. STAGE 1: VERTICAL/HORIZONTAL ACCESS-EQUITY CONSTRUCT 82
B. STAGE II: HISTORICAL ONTARIO DEVELOPMENT CONSTRUCT 85
C. STAGE III: TWO DIMENSIONAL INSTITUTION-ORIENTATION
CONSTRUCT 87
STAGE IV: THE PROACTIVE/INTERACTIVE CHANGE CONSTRUCT 89
STAGE V: INTERACTIVE CONSORTIUM NETWORK CONSTRUCT 92
STAGE VI: THE STUDY AREA ACCESS-EQUITY IMPROVEMENT
MODEL 94
1. Level One Environment: Northern Ontario Higher
Education 'System' 94
2. Level Two Environment: Southern Ontario Univer-
sity Community 98
3. Level Three Environment: Significant External
Impactors 100
G. CONCLUSION: MODEL STRUCTURE AND FUNCTION 104
CHAPTER VII - SUMMARY STATEMENT AND IMPLICATIONS FOR FURTHER
RESEARCH 110
A. RESEARCH FOR THIS STUDY IN RETROSPECT 111
B. FURTHER RESEARCH 112
APPENDIX A - RELEVANT REPORTS AND STUDIES 114
APPENDIX B
Table 1 116
Table 2 117

Table 3 118
vii

APPENDIX C - ANATOMY OF A MODEL (After Chorley and Haggett) 119

APPENDIX D — SUMMARY OF DESIGN FOR DEVELOPMENT PROGRAM 120
APPENDIX E - SERVING AND DESERVING: DISTRIBUTION AND

EXPLANATION 123

Table 1 127

LIST OF REFERENCES 128

FURTHER READING 134

viii

Figure

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Hit-DH
NHO

LIST OF FIGURES

Study Area: General Setting

Higher Education Delivery Sources: Northern Ontario
Higher Education Delivery Sources: Southern Ontario
Undergraduate Enrollment Growth: Ontario Universities
Vertical/Horizontal Access-Equity Construct
Historical Ontario Development Construct

Two Dimensional Institution-Orientation Construct
Proactive/Interactive Change Construct

Interactive Consortium Network Construct

Study Area Access-Equity Improvement Model

Serving

Deserving

ix

124
125

CHAPTER I
INTRODUCTION

1. The Problem

 

In the following study, the problem addressed is a complex social
problem which has developed on a relatively simple physical base-~one
of separation.

Nations and states are made up of differing natural (physical) en-
vironments: grassland, forest, desert, tundra, uplands, highlands. In
the course of development, certain regions are favored because of posi-
tive combinations of conditions. These become the most highly developed
among regions, and the physical separation between them and areas less
favorable for settlement takes on philosophical dimensions: adaptation
to less hospitable environment and less-ready access to many social
services (including higher education) lead to unique regional character-
istics. The specific problem of inequity in access to services for
people in these Primary Resource Regions (see p. 8) has been presented
in another way by Knox (1975).

. . since we do not expect to discriminate against
people on the basis of race, religion, colour, or
social class, neither should we discriminate against
people on the basis of area of residence. Territor-
ial discrimination may be less individualistic in its
manifestations, and have less immediate effects than,
for example, racial discrimination, but it should be
equally important to a society which claims to be

egalitarian, as most Western societies do. (p. 3)

As the contrast in character between metropolitan and Primary

2

Resource Regions has become intensified, the social problem of separa-
tion has become increasingly complex. The base of physical separation
still exists in terms of distance or space. It is logical, therefore,
that any workable solution to the problem must, of necessity, incorpo-
rate a spatial dimension (Coates, Johnston and Knox, 1977).

I The problem is a universal one (Rogers, 1972). All states possess
Primary Resource Regions, and the search for solution to the problem

also becomes a universal one.

2. Scope and Organization of the Study

The study is viewed as a vehicle by which the problem may be ex-
amined as it exists in the Province of Ontario, Canada. Development
has resulted in creation of a Primary Resource Region in the northern
part of the province (Figure 1). There is a marked contrast in the
pattern of higher education delivery in the northern and southern parts
of the province (Figures 2 and 3).

The problem, as it applies to higher education, is based upon the
same separation as above, differential development, as above, and
growth and expansion in recent decades (Trow, 1973; Ontario Council on
University Affairs White Paper, 1978; Figure 4). An analysis of back-
ground to the problem--physical, human and higher education background--
is, therefore, an essential early component in the study. Also
surveyed are problems in the specific areas of form, function, and per-
ception as they have been a part of regional higher education. These
vae resulted in the present existence of a virtual 'non' system for
the north.

Higher education is a component of regional development, and also

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Figure 3
HIGHER EDUCATION DELIVERY SOURCES:
SOUTHERN ONTARIO
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Hamilton - MC Master University
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London - University of Western Ontario
Ottawa - University of Ottawa,
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Peterborough - Trent University
St. Catherines - Brock University
Toronto - University of Toronto,
York University
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Wilfred Laurier University
Windsor - University of Windsor

.1. .1. .1. Approximate margin - Canadian Shield

Base Map adapted from
Ontario ( 7' E lGA ) l976 (c)

FULL TIME UNDERGRADUATE ENROLMENT‘ ONTARIO (Thousands)

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"° UNDERGRADUATE ENROLMENT GROWTH:

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an instrument by which regional development can be encouraged and
directed. The importance of higher education to regional development,
in traditional and contemporary contexts, becomes a major segment of
the study. This leads naturally to structuring of a framework within
which potentials for improved higher education organizations are ar-
ranged and viewed.

A sequence of constructs with spatial significance for the problem
as it exists within the study area leads to proposal of a model with
potential for improvement through its applicatiOn.

Summary statement and implications for further research comprise

the last section of the study.

3. Aim of the Study

The study is focused first on an analysis of origins of the prob-
lem in the study area. Secondly, it is intended that the research
should center attention on that dimension of the problem which is only
beginning to receive its due share of interest--the spatial dimension.

Overall, the study is aimed at developing and proposing a model
whose application might lead to improvement in equity of access to
higher education Opportunity for Northern Ontario. This would be a
significant step toward greater spatial justice for the region in terms
of social services in general.

Finally, the research, by concentrating upon organization for
'flnprovement, is aimed at proposing the kinds of suggestions generaliz-

able to other Primary Resource Regions.

4. Research Interest

 

Interest in undertaking research on this specific theme developed
from a lifetime of residence in the selected Primary Resource Region,
and from a professional (Geographer's) concern for regional well-being
relative to higher education among other social opportunities. Beyond
this, the concern extends to better operation of the larger higher edu-
cation system, and through this, to a better process of regional devel-
opment, with higher education instrumental in that process.

Combined with this motivation has been a long-standing feeling,
recently legitimated by the literature (Bucksar, 1969; Harvey, 1972),
that the insights of indigenous people, though subjective, possess a
sensitivity to regional reality and need which make them a necessary

input into this kind of research.

5. Definition of Terms

 

PRIMARY RESOURCE REGION (ECONOMIC COLONY)

This term describes a region identified mainly on the basis
of a resource (mineral, timber) or combination of resources, re-
moved from the region with no (or little) value added by process-
ing. Return benefits are largely related to maximizing resource
removal. The destination of resources may be a metropolitan
region within the same country, or in another country. In the
Ontario context, Northern Ontario is the Primary Resource Region.
In the North American context, Ontario might be considered the
Primary Resource Region.

In this study, the main resource consideration is the

human resource: the tendency has been for people from the

Primary Resource Region to migrate to metropolitan centers.

PRIMARY SETTLEMENT FRONTIER

Frontier areas in this category have been described by
Prescott (1965) as 'historical features'. Each is usually
characterized by a potential for development of a variety of
economic activities. Resource combinations are generally
favourable, hence settlement can advance uniformly along a
front. Population densities will generally be found to be

moderate to heavy, and development can be relatively uniform.

SECONDARY SETTLEMENT FRONTIER

When an inhospitable frontier area is encountered,
(desert, rainforest), the advance of settlement will be fo-
cused upon a single resource (such as minerals) or made
possible by technological development (irrigation). The
potential variety of economic activities is limited, set-
tlement advance will frequently be along lines, to become
clustered at points, and overall densities will generally

be light.

RESOURCE TREATMENT (PROCESSING)

183513: Physical resources undergo initial stages of
processing (refining) to make shipping more economical. In
an educational sense, elementary education is provided.

Secondary: Physical resources undergo processing to a
semi-finished stage. In an educational sense, secondary
academic and vocational education is provided.

Tertiary: Physical resources are made ready for the

10

consumer market. In an educational sense, migration to the

metropolitan region has been and remains largely necessary.

VERTICAL (SOCIAL) DIMENSION OF SEPARATION

In this study, separation from access to opportunity by
reason of sex, color, economic circumstances, family back-
ground and such criteria, is termed the social or vertical
dimension. Such separation or deprivation may occur within
the metropolitan area, and may increase with distance away

from that area.

HORIZONTAL (SPATIAL) DIMENSION OF SEPARATION

Separation from access to opportunity is by reason of
increasing distance from the metropolitan center. Linear
distance may be increased by such conditions as topographic
constraints, climatic constraints, and land-water relation-

ships.

TERRITORIAL DISCRIMINATION (SPATIAL INJUSTICE)

This is the kind of discrimination that Knox, (1975) and
of injustice that Harvey, (1972) see practised against people
on the basis Of where they reside. In this study, such dis-
crimination (injustice) takes the form of low-order service-
provision and general lack of access to various opportunities.
It is usually accounted for by high provision-costs related
to distance, low density population, and highly scattered

population distribution.

ACCESS INEQUITY

Whereas equality per se may be impossible, the right of

11

access to opportunity for self-fulfillment should be available
in all regions. The need to migrate from the Primary Resource

Region for many such Opportunities perpetuates access inequity.

AFFILIATION

Traditionally, in the academic context, an emergent insti-
tution enters into an affiliation agreement with a mature,
established institution. This senior partner arrangement
allows for assistance in becoming established and provides for

protection of academic standards.

PHYSICAL/PHILOSOPHICAL SEPARATION

Where settlement has been extended into a different kind
of physical (natural) environment, (woodland to plains), dif-
ferent response to environment and resources usually leads to

different values, attitudes, practices and outlooks.

SOCIAL WELL-BEING

Smith (1973) uses this term in place of social welfare to
emphasize the fact that groups (rather than individuals) iden-
tified by place of residence are the center of attention. This
is a particularly useful term when dealing with the problems of
the Primary Resource Region. It means that emphasis is, as
Smith suggests, on geographic distinction rather than on dis-

tinction in terms of government policies.

REGIONAL DEVELOPMENT
Economic-Quantative Orientation: The traditional emphasis
in regional development for the Primary Resource Region has been

one of realizing maximum economic return with maximum resource

12

extraction from the Primary Resource Region.
People-Qualitative Orientation: The more contemporary
emphasis in regional development for the Primary Resource
Region is one of balancing management of resources with ex-
traction, and providing increased facilities and programmes

for social well-being opportunity within the region.

PRESCRIPTIVE PLANNING

Trow (1973) suggests that prescriptive planning has been
the common approach, in advanced societies, toward higher edu-
cation planning. It has included emphasis on estimates and
projections; economics and resources available; and detailed
design for future facilities, content and methods of instruc-

tion.

SYSTEMS PLANNING

Trow, again, portrays systems planning as requiring place-
ment of emphasis on diversity and flexibility. These are nec-
essary in responding to change, brought about by what Trow
calls secular trends and unforeseen developments, based largely

upon values and attitudes.

INTERACTIVE CONSORTIUM

The organization within this construct allows for any num-
ber and cOmbination of mutually beneficial agreements and
cooperative programmes between institutions of the Primary
Resource Region and of the metropolitan region. The operation
is termed interactive on the assumption that input of values

can originate in either region for transfer to the other. In

13

the model, the consortium is the total of all cooperative
efforts, monitored for effectiveness and as a basis for plan-
ning and coordinating spatial distribution of higher education
service. The representative body responsible for functions

would be the Consortium Council as discussed in Chapter VII.

UNDERLYING CONSTRUCTS

This sequence of diagrams and explanatory text in Chapter
VII is used to illustrate the most important features of pre-
ceding discussion placed into combined spatial and functional
frameworks. Each, then, becomes an input to understanding

and appreciating the model and its potential application.

STUDENT MOMENTUM

The prestige of major metropolitan universities, combined
with the residual loyalty and sentiment toward them as pre-
viously developed within the Primary Resource Region (prior to
the introduction of higher education facilities) accounts for
resistance to the acceptance of new 'in situ' facilities.
Unless new facilities are well-distributed, this momentum will
make a 350 mile or more trip to university of little more con-

sequence than a trip of 150 miles, plus or minus.

6. Methodology

 

The research adheres largely to those elements of scientific in-
quiry summarized by Sarre (1972). Much of the content is based upon
OBSERVATION 'of the phenomena which are of interest'. This includes
observation through direct life-experience, professional involvement,

formal studies, and exposure to literature.

14

The second stage is represented by DESCRIPTION of information
gathered. Description and analysis are presented 'verbally, graphically
and mathematically', as well as by the three in combination.

In the third stage, the researcher, utilizing 'abstraction and
generalization' HYPOTHESIZES ‘that what he has described are variants
of a situation which is generally true'. Because the main interest is
in the pattern of organization (for improvement), and the researcher is
(as a Geographer) 'more interested in spatial patterns than are other
social scientists', the culmination of the study occurs in advancement
of an 'ideal type model‘.

The fourth stage, 'DEDUCTION from the theory about what will exist
or happen in another place with its own circumstances' awaits the tests
of time and acceptance, to measure for verification of the theoretical
model in application--in the study area, and generalized to other Pri-
mary Resource Regions.

Similarly, stage five, 'OBSERVATION . . . to test the predictions
made in the previous stage' awaits the same tests as in stage four.

Background to the systems approach and the model component of

methodology are dealt with in the text and in Appendix C.

CHAPTER II
BACKGROUND OF THE PROBLEM

A. GEOGRAPHIC BACKGROUND

It is difficult, but necessary, to separate the physical and human
geographic background components of the present problem. This problem
is only one of many deriving from the inhospitable character of the
Canadian Shield environment. In the broader sense, Watson (1968), sug-

gests that

Canada is size and ruggedness, northness and margin~
ality; it is also competition, conflict, tolerance
and accommodation; the physical environment is one
of challenge, if not frustration, to which the human
response has been one of unremitting effort, courage
and ingenuity. (p. 42)

Specific to the Canadian Shield, Wolfe (1968), comments
. . the Canadian Shield long resisted economic ex-
ploitation, beyond the rather primitive form of

gathering wood and furs. It was and remains a bar-
rier to stable settlement and to communication. (p. 192)

1. Physical Geographic Background

A series of mountain-building processes through Cambrian and pre-
Cambrian times created the mountain systems whose remnants are collec-
tively referred to as the Canadian Shield. This physical phenomenon
accounts physiographically for more than half of Canada's surface area.
Exposed outliers occur in the United States west of Lake Superior, and
also as the Adirondacks, whose link is via the Frontenac Axis,

(Thousand Island area), east of Lake Ontario.

15

16

Watson's negative impression of size, location and physiography is
strongly enhanced by the presence of the far-reaching Canadian Shield.
The Shield possesses barrenness as a heritage of its northern location
and its having been subjected to the impact of the successive ice ages.
These left their negative net effect from the processes of scouring,
removal and compression.

Physically, the surface of the Shield possesses characteristics
directly related to these glacial-linked processes. The landscape is
generally lake-strewn and grained in a north-south orientation, with
major rivers draining the watershed into the Arctic-Hudson Bay and Great
Lakes-St. Lawrence catchment basins. With the exception of post-
glacial lake bed areas, soils are largely thin, stony, and acidic.
Vegetative enrichment of soils is limited with the dominance of coni-
ferous species. Regional drainage is largely irregular, with low
lying areas of marsh and bog presently experiencing infilling and vege-
tative masking.

Geologically, the rock formations of the Shield have been endowed
with a variety of economic minerals in various combinations and concen-
trations. Most significant have been copper, iron ore, gold and silver,
nickel, lead and zinc, and uranium. Vegetatively, the Shield area
supports the northern limits of the Great Lakes-St. Lawrence mixed
deciduous-coniferous forest, as it blends northward into the dominantly
coniferous Boreal Forest unit. The hydrology of the area, while irre-
gular, is characterized by numerous occurrences of rapids and waterfalls.

As the keystone province of Canada, Ontario stands as representa-
tive (physically and historically), of the formidable dichotomy between

Shield and non-Shield land area. The southern part of the province is

17

overlain by the deeper Paleozoic sediments, derived from the north
through glacial transport and consolidated into some of Canada's most
productive soil areas. The area north of a line taken from the Thousand
Islands westerly to the eastern extremity of Georgian Bay is character-
ized largely by exposed scoured bedrock, disorganized drainage, shallow
stony soils, distinctly grained landscape, dominantly coniferous vege-
tation, and limiting climatic constraints. This is Ontario's portion
of the Canadian Shield.

The inhospitable side of this area's physical character has been
portrayed by some of Canada's better known poets and artists. F. R.

Scott (1967) refers to the Shield with the suggestion that

It leans away from the world with songs
in its lakes
Older than love, and lost in the miles. (p. 91)

E. J. Pratt (1967), in greater detail, captures the immensity and awe:

On the North Shore a reptile lay asleep-
A hybrid that the myths might have conceived,

She lay snug in the folds of a huge boa

Whose tail had covered Labrador and swished
Atlantic tides, whose body coiled itself

Around the Hudson Bay, then curled up north
Through Manitoba and Saskatchewan

To Great Slave Lake. In continental reach

The neck went past the Great Bear Lake until

Its head was hidden in the Arctic Seas. (p. 61)

Even the literary personification of the physical reality is
negative: reptilian. Watson's "human response . . . of unremitting
effort, courage, and ingenuity" captures the human background to date

and sets the stage for consideration of the present problem.

18

2. Human Geographic Background

The central problem-theme of the present study is a link in a
chain of human-response concerns founded on the negative power of the
Shield characterized in the last section--the power to separate.

The main pre-agricultural interest in North America's land area,
as projected by the European founding countries, was focused upon a
singular resource--furs. For this resource, the conditions present in
the Shield area were optimum, and human conflict and compromise found
early New World roots. Ironically, the impact was profound. Clark and

Innis (1968) capture the irony in the suggestion that

It was to the misfortune of a country for which the
fur trade has been relatively unimportant economically
for more than a century that these (Canadian-U.S.)
boundaries were fixed, for almost all their length,

by the heavy hand of that trade, the logic of its
changing geographies of transport, supply and rivalry,
and an unconcern or negative feeling about settle-
ment and other kinds of resource exploitation. (p. 36)

The main impetus to frontier and settlement in North America was
not, however, to be furs, but rather agriculture. And it is in this
respect that the Shield exercised its lasting separating function.
Canadian westward expansion in terms of agricultural settlement followed
the Great Lakes-St. Lawrence Lowland, remaining south of the barrier
presented by the Shield front. The uniform primary settlement frontier
of the agrarian advance could not extend its uniform pattern onto the
inhospitable Shield surface in being projected toward the Prairies of
the west. That step had to be taken through the United States midwest.
Nelles (1974) notes that

In Canada the interaction between political values
and geographic environment did not permit one conception

19

of landuse to dominate the entire framework of resource
alienation. The liberal, philosophical foundations

for agrarianism were weaker, and the rocky margin of
the Shield clearly limited the very conditions of its
existence, namely prime arable land. (p. 44)

The fundamental philosophical contrast imposed by the inhospitable
Shield upon land alienation practice in Canada and the United States set
the pattern for development and settlement which has held to the pre-
sent. Whereas the progressive agrarian expansion in the United States
was accompanied by belief in transfer of land from public to private
ownership, the barrier of the Shield encouraged, in Canada, retention
of land rights by the Crown. As a result, the resources of land,
minerals, sawtimber and pulpwood, waterpower, and later, recreational
and aesthetic resources and areas, awaited development essentially on
the basis of license or leasehold from the Crown and external domestic
and foreign capital.

Such development became characterized by the point and line pattern
unique to the secondary settlement frontier. Settlement occurred and
remains primarily focused upon mineral occurrences, at the juncture of
river and lakeshore, on pockets of productive soils, at industrial
sites, and along linear routes linking combinations of these. In the
larger sense, the 'national dream' of a transcontinental rail line to
enhance the political ideal of a single country from Atlantic to Pacific
faced one of its most formidable challenges in crossing the Shield
counter to its north-south 'grain'.

Area organization in Ontario's northern Shield region is, there-
fore, significantly different from that in the southern antecedent
agrarian-industrial region. North of the line approximating the

southern front of the Shield, (Figures 2, 3), territory is divided into

20

Administrative Districts rather than Counties as in the south. The
land in these districts is largely unorganized for municipal purposes,
and such area is administered by the Ministry of Natural Resources.
Most of the population, on the other hand, is clustered in small areas
which are organized for municipal purposes, and possess local government
facilities. One result of this dichotomy is the frequently voiced
emphasis on extremely low population density within the administrative
districts. The view taken in this study is that density for the dis-
tricts should more realistically derive from an 'organized area' rather
than 'total area' base (Appendix E).

It is within the context of this background of area separation--
sometimes inadequately referred to as metropolitan/non-metropolitan
dichotomy--that delivery of all public services, including higher edu-
cation, has faced its problems. It is within this context that the
present study incorporates an examination of higher education access-

inequity for the Primary Resource Region as found in the northern part

of the Provice of Ontario.

B. RELEVANT HISTORICAL HIGHER EDUCATION BACKGROUND

One might be tempted, in the present context, to trace facets of
the character of a university and its function back to antiquity. In-
stead, the decision has been taken here to examine some of the signi-
ficant changes which have occurred in the telescoped time-frame since
the latter part of the nineteenth century. This period encompasses
the: evolution of Ontario's university system per se. The changes are

re] ated, wherever possible, to what are taken as the most significant

mac no and micro level forces within an expanding environment whose

21

increasing complexity has created reaction problems for the university
and its people.

While the forces involved are numerous, their significance will
be seen here in association rather than in enumeration. A time scale
fOr higher education has been structured, on the basis of these forces,
with a view to generating a specific focus upon one central problem
hypothesis--spatial inequity in access to opportunity.

It should be helpful first to place the broader spatial conditions
and forces into a framework into which the more specific and inter-
active processes have had their fit.

Entering into the latter portion of the nineteenth century,
national populations were predominantly rural-based. Since that time,
the profound process of urbanization has been accompanied and intensi-
fied by specialization, division of labour, and increasing complexity,
mobility, and attitudinal shifts in environment, perspective, and per-
ception. The more spontaneous forces responsible for intensifying the
impact of the larger process have frequently skewed higher education
from its gradual response to the urbanizing trend. World Wars I and 11,
along with regionally-focused lesser conflicts, created expanding inter—
national awareness of relative conditions and values. As time and
:space contraction increased the ability of media to make populations
Inore acutely aware of their status as global citizens, and perhaps of
the need for greater moral responsibility, a growing global conscience
developed.

Interwar phases of 'boom and bust' added to the complexity created
by. war-related phenomena--massive production, high levels of employment,

and vi ctory-related Optimism, (or defeat-related recovery assistance).

22

Higher education became subject to reacting to more 'instant' type de-
mands than ever before: provision of places for massive numbers of
returnees who would be assisted in access to higher education opportu-
nity, and a broadening of curriculum whose relevance could c0pe with
accelerating social and technological change.

The elasticity of the university came to be tested increasingly
with time. It would become less possible to maintain a profile of
shaping thought for an expanding and changing new world, the majority
of whose inhabitants would never enjoy its environment. At the same
time, the university was entering into relationships which would even-
tually generate questions and, in many instances, problems recognized
and articulated from within and without. Resident of the increasingly
important urbanizing areas of most jurisdictions, it naturally became
increasingly separated physically and philosophically from the bulk of
population in the agricultural and non-agricultural settlement frontier
areas .

As ties between regions grew more tenuous, ties within regions in-

tensified in nature and complexity. Kerr (1972) refers to

developments (which) have effected such enormous
changes in the intellectual orientation and aspir-
ation of the contemprary university as to have

made the university we knew as students now seem

a strangely underdeveloped, indeed a very simple

and an almost unconcerned kind of institution. (p. 7)

The tensions of a cold war which could account for the world-wide
state of unprecedented anxiety set the stage for the late 19505 when
Sputnik demonstrated a competitive edge. Higher education in the free
world faced new dimensions of challenge. The complexity of solutions

with which response to such challenge would become associated would

23

demand new response patterns: ushering a generation through the leap

to the cybernetic revolution; creating consciousness, within nations,

of social injustices existing domestically as well as internationally;
creating an ethic which could challenge the mounting problems derived

from overemphasis on anthropocentrism, centralization, and integration
of economic activities.

The ethic of environmentalism would enjoy a meteoric rise in the
19605, and would meet its formidable challenge from employment lobbying
in the inflationary 19705. And, along with this reversal, universities
would find themselves facing, as never before, the need to justify
their academic existence by economic standards.

The institutional response has not been impressive system-wide.
Government, with a necessary higher profile in higher education because
of spiralling costs, has seen fit to fragment the principles and mech-
anisms by which higher education is justified, financed, and delivered.
New names have appeared with greater and lesser relevance to the realm
of higher education per se: lifelong education, vocational education,
continuing education, adult education, . . . The labels themselves are
ambiguous enough, and defy interpretation adequately, to accommodate
new departures in process and program. (An immediate problem is defined
as unemployment, and education to render people 'employable' is an im-
mediate response.)

By and large, the university has been growing in response to
societal and corporate 'needs' along a variety of lines, but has been
becoming 'vertically' and 'horizontally' more removed from access for
the 'new' populations it should be serving. As mentioned previously,

such populations may appear spontaneously as happened after World War II.

24

0“ the other hand, there are populations whose need for access has
Eluded attention, or has had attention focused upon it gradually to
the response point. In the latter case, political and academic insti-
tutions have responded in recent years to mounting demands for greater
access to opportunity in higher education across the socio-economic
spectrum. This is the kind of access defined herein as vertical, and
has been the subject of much attention.

The present study is primarily concerned with the separation of
the university in its present form, as the metropolitan multiversity,
from populations in the non-metropolitan regions of most jurisdictions.
This 'horizontal' separation has resulted in the condition referred to
as 'territorial discrimination' expressed through access-inequity and
spatial injustice. It is the existence of this discrimination which
lies at the root of this study. I

New forces and processes have appeared in recent years, and gained
necessary support, to the extent that they appear to possess potential
for advancing attempts to correct territorial discrimination from the
'lip-service' stage to the 'action' stage. The need for consultation
regarding the best means of rationalizing higher education has been re—
flected in a number of recent studies (Appendix A). The encouragement
of regional (state) colleges and universities apart from metropolitan
areas has, in turn, been encouraging. The rise in demand for humanism
may place in question certain realities associated with the metropoli-
tan multiversity, as will be considered. The demand for egalitarianism,
brought into proper focus and adapted to the spatial problem, will en-
hance remedial actions. The appearance of new technologies at economic

levels of availability will probably leave the academic community

25

dragging its feet. And recognition by society that developed countries
have stepped from the industrial to the post-industrial era may swing
educators from reliance upon crisis-response, band-aid adjustments in
higher education, to more effective and stable 'goal-specific' adjust-
ments.

In summary, the assumption taken here is that metropolitanism,
with all its attendant phenomena, has forced the university to conform
in similar fashion to the urban center: to accept growth as good; to
attempt to be all things to all people; to develop mind-boggling rela-
tionships and interdependencies; and to adjust by crisis-response
rather than by stable, carefully planned design.

Economies of scale have been demonstrated to possess serious dis-
economies. Rapidly acquired size has been demonstrated to possess
inflexibility and depersonalization. Attitudes associated with the
'bigger is better' myth may be academically unsound and dishonest.
Higher education's community must reacquire the lead-position in direct-
ing society, rather than retain its present follow-position in respond-
ing to society.

Application of values which are consistent with a service and
leisure-based society's qualitative and well-being orientation, as
opposed to a traditional industrial-based economic and quantitative
orientation, is important. These values are not new to the university;

it has always possessed them. It needs now to project them.

CHAPTER III
A REVIEW OF REPRESENTATIVE LITERATURE

A review of literature for the present study might be seen as
taking the form of a synthesis from areas such as higher education,
sociology, geography, history, cultural anthropology, philosophy, social
welfare, basic systems analysis, social psychology, communications, and
management science. 0n the applied side, sources include cooperative
institutional studies, government commissioned reports, and government
publications dealing with regional analysis, strategy, and policy.

A construct which has been found helpful in appreciating that there
is a rational form for the synthesis (and which is dealt with in detail
relative to the model in Chapter VII) is the VERTICAL/HORIZONTAL ACCESS-
EQUITY construct (Figure 5). The first three categories of literature
dealt with represent the change in emphasis from the vertical to the
horizontal dimension of concern with access equity. The fourth cate-
gory includes institutionally prepared and/or commissioned reports. The
fifth deals with methodology, examined for purposes of incorporating

sound constructs into the model in Chapter VII.

1. Non Theme-Specific Literature

The vertical component of access has been the subject of much con-
cern and investigation over considerable time. Most prominent among the
writers dealing with this component have been sociologists. The primary

focus for most of the work has been the urban/metropolitan environment,

26

27

and concern has been with access to opportunity as affected by such
criteria as race, sex, color, religion, socioeconomic background and
family background. The landmark study in this connection was summarized
in the report by James S. Coleman and Associates (1966), commissioned
by the U.S. Office of Education. Response to the report of Coleman,

et al. was consolidated in a publication edited by Mosteller and
Moynihan (1972). The work is further taken up by Jencks (1973). Micro
level studies related to the construct are exemplified further by the
work of Brookover, et al. (1977). Expanded studies are represented by
Persell (1977). The foregoing illustrate the attention paid to the
matter of sggial_deprivation/inequity/injustice as applied to education.
Thus, the attention has been directed almost exclusively to the verti-

cal dimension of the construct.

2. Transitional Literature

There is another category of literature whose main thrust is
directed at the social dimension, but which intentionally or uninten-
tionally touches upon the matter of spatial (HORIZONTAL) deprivation/
inequity/injustice. This is the matter which stands at the core of
the present study.

Warren Bryan Martin (1976) suggests that chance should be distri-
buted equally, although achievement is destined to be unequal. This has
definite implications in the spatial context. The Carnegie Commission
on Higher Education (1973) identifies purposes additional to those tra-
ditionally associated with higher education. One of these is defined
as educational justice or equal access. Fred J. Harcleroad, et al.

(1969) focus on the problems associated with growth, and suggest that

28

the problem of territorial needs is not associated originally with
increasing numbers, but with a pressure to accommodate local high school
graduates lacking transportation facilities and hampered by distance.

W. G. Fleming (1974) suggests that facilities of more remote or poorer
areas should be brought up to qualitative levels 'not scandalously
below' those of more central, concentrated and wealthier areas. This
has profound geographical relevance.

Everett Rogers (1976) in dealing with Communication and Development,
defines concisely the Primary Resource Region concept dealt with in
this study. He attributes to every state the possession of interior
region(s) which act as economic colony(ies) for another part of the
state. This describes the situation of Northern Ontario. This is the
kind of area whose residents Harcleroad, et al. are concerned with.
More specific to the Ontario context, and considering the work of
historian H. V. Nelles (1974), we find that, in the same area of commu-
nication and development, the purposeful 'use' of education has been as
'agent of promotion', a use sanctioned and encouraged by government in
the 'development' of Northern Ontario's government-owned timber,
mineral, and water power resources.

John D. Millett (1974) suggests that traditional alignment of
higher education with the wealthy, the powerful, and the influential,

has resulted in an immoral, imperialist, and racist society. The sec-

 

ond descriptor further legitimates the present study as it informally

defines the relationship of the Primary Resource Regions.

3. ‘Theme—Specific Literature

 

A relatively recent body of literature has its interest focused

29

upon the HORIZONTAL dimension of the access-equity construct as des-
cribed. The principal contributors are geographers, including primarily
Harvey (1972), Smith (1972, 1973, 1974), Knox (1975), and Coates,
Johnston and Knox (1977). Understandably, the emphasis is upon SOCIAL
GEOGRAPHY, a field generally assumed to be treated adequately under the
Cultural Geography label. Knox identifies the 'new responsibility':

One of the fundamental objectives of human geography
should be to determine spatial variations in human
welfare, yet until recently, little of its litera-
ture has directly considered questions of this
nature. (Preface)

At this critical juncture in the literature, recognition is given
the need to incorporate a separate focus upon the previously mentioned
horizontal dimension of concern relative to the distribution of well-
being: as David Harvey terms it, just distribution, justly arrived at.

D. M. Smith (1974) sees social deprivation as a significant feature
of regional makeup. He sees the need for geographers as humanists to
augment Eliot Hurst's 'geographer as mechanic'.

In concert with those who view the responsibility of liberal edu-
cation as providing a humanizing education for students, Smith sees the
present time-frame as being opportune for the geographer who possesses
1) the tools and sophisticated approach derived from the 'quantitative
revolution', combined with 2) the socially conscious concerns of the
'qualitative revolution' aimed at improving the human condition. Such
a geographer becomes a key participant in that contemporary 'qualitative
revolution'. In a sense, Smith, along with Harvey, bridges the litera-
ture gap in suggesting Opportunity for geographic innovation directed

toward judging spatial distributions from the perspective of social

30

justice. Smith suggests that geographers should meet the qualifications
for 'feeling human beings' as well as for 'skilled scientists, techni-
cians, managers, and teachers'.

David Harvey advances this opportunity to the application stage.

He sees need for the economically-biased efficiency criterion in loca-
tion theory to be supplemented by a spatial/territorial allocation
criterion based upon social-justice principles. The skeletal framework
for this new concept is a 'just distribution, justly arrived at', and
he presents a normative framework for analysis based upon 'need, con-
tribution to the common good, and merit'. In addition, and of particu-
lar interest, he allows for the value of input from the long-term
indigene whose input, though admittedly subjective, profits from a
sensitivity to local need. He further relates the colonial construct
to a natural capital flow in industrialist/capitalist society, and
similarly presents the logic of selecting between centralized and de-
centralized decision-making as relating to the initial conditions exist-
ent in the setting.

P. L. Knox sees discrimination against people on the basis of where
they live as being no more justifiable than discrimination for social/
racial/economic reasons. In his view, a society which claims egali-
tarian philosophy as its own can logically tolerate neither.

Coates, Johnston, and Knox consider the importance of spatial solu-
tions in the treatment of problems associated with spatial inequity/
injustice. Such solutions do not address the causes of the problem;
they are insufficient in themselves; but they are a necessary dimension

of any problem—oriented social policy.

31

4. Documentary Literature

 

The 1969 report of the Atlantic Provinces Higher Education Commis-
sion contains reference to the lack of proper priority as applied to
the development of human resources in the past, and also to the under-
development of people as a continuing major factor in retardation of
regional progress economically and socially. The authors cite the need
for assumption by institutions of higher education of "the high degree
of responsibility that is a necessary concomitant of autonomy", and for
increase in the kind and effective delivery Of information aimed at
enabling the general public to "comprehend and appreciate the value and
importance of higher education for the well-being of the area". These
needs are, in turn, indicative of the need for adequate support and finm
commitment from government. Regional organization should possess a
kind of student/professorial 'mix' which can offset the "essential
unity of the region and the danger of narrow provincialism being fos-
tered among professors and students concerned only with one province or
small region". (pp. 91, 92)

In the 1976 report on higher education in non-metropolitan areas,
based on‘a study and series of hearings in British Columbia, Canada,
some of the features associated with the importance of non-metropolitan
delivery of higher education are identified. Referring to the experi-

ence of smaller regional facilities, it is suggested that

their graduates appear to be more prepared than do
metropolitanly trained students to pursue long-term
careers in the smaller cities of the Province . . .
The overall goal of the proposal is to discover
means by which education opportunity in the Province
can be partially equalized . . . While many poten-
tial students in the interior are in a position to
relocate at the coast, many are not. It is consider-
ably cheaper for a student to live at home and

32

commute to a university than it is to obtain accommo-
dation away from home but this alternative is not avail-
able to students from the Interior. Some people have
family and employment responsibilities in Interior
centres and are thus not able to relocate to the coast.
. . . of a less concrete but probably equally important
nature is the unwillingness of many students to move

to the coast. Many do not wish to live in a big city
away from family and familiar surroundings. Such un-
willingness should not serve as a bar to participation
in the senior postsecondary system. (Insofar as what
is to be done is concerned, the report suggests that)
it is only after a wide ranging debate concerning the
means of instruction, admissions policy, the nature

of curriculum and the appropriate institutional
structgre that any consensus can be achieved. (pp. 33,
34, 40

D. M. Cameron (the Cameron Report, 1978), examines the background
to the present situation in the Primary Resource Region of the present
study. He goes on to discuss the matter of institutional reorganiza-
tion, placing emphasis upon failure of existing structure to meet the
potential for imaginative and responsive programs. Organizational
change is seen as being essential at two levels: in the internal net-
work, and in provincial/institutional relations. Justification for

effort directed toward policy improvement is summed up in the words

certainly northern Ontarioans deserve the attempt

. . . It has not been malevolence toward the north
so much as indifference to its special circumstances
which has bequeathed the problems with which this
study has sought to grapple. (p. 191)

The Ontario Government Royal Commission reports, (Algoma University
College, 1977-78) contain the most intensive micro-level analysis of
existing program and delivery problems for the region. The findings led
the comnissioner to reconmend closure of the institution effective
June 30, 1978. This followed clear assertion in the preliminary reports

that closure was an alternative, but not an acceptable one. On

33

January 13, 1978, the government announced a five year 'stay-of-
execution', with supplementary funding to be provided by the new
Ministry of Northern Affairs, with time allowed for demonstration of
viability.

The statement released by the Ontario Council on University Af-
fairs (1968) and dealing with the Northern Ontario problem, has refer-
ence ‘to the north in two compartments--northeastern and northwestern--
as do the Cameron Report and the Design for Development programme. The
OCUA authors envision a University of Northeastern Ontario, with its
main campus at Sudbury, (Laurentian University), and satellite campuses
in the other major northern centers. The main concerns expressed, to
which rationalization should be addressed, are the meeting of community
needs and the avoidance of further buildup of fixed instructional re-
sources. In fact, though not in word, the authors advocate continuance
of the existence of the same affiliation situation which has been cen-
tral to many of the 'system' problems in the past.

Remaining documentary literature, including consortium agreement,
(South Dakota), consultant study and cooperative study, (University of
Minnesota, Duluth; University of Wisconsin, Superior; and St. Scholasti-
ca), and the earlier COPSE (Commission on Postsecondary Education in
Ontario), provide valuable philosophical and operational insight for

the present study.

5. Methodological Literature

Since the present study is built largely upon a geographic bias,
and assumes to undertake development of a model with distinct spatial

significance, resort is taken to one of the finest basic, generalist-

34

oriented sources on geographic models, by Chorley and Haggett (1967).
The major assistance sought from, and provided by, this source is a
sense of clarification on meaning, purpose, categories, and potentials
of models (Appendix C).

The somewhat philosophical 'model' provided by Trow (1973) is
adapted, modified, and given spatial applicability by Kerr (1978). In
the latter case, the categories are less 'negatively-loaded' and service-
area scale for different levels is introduced. .

For a general framework within which the model is to be seen as
fitting and operating, the natural selection is a system framework. In
this connection, Millett (1974) clearly presents a case for 'systems
planning', as contrasted with the more traditional (in educational set-
tings) 'prescriptive planning'. Also, Alice Rivlin, (1971) advocates
the need for, and superiority of, well-funded and more generally en-
couraged 'systematic experimentation' as compared with the more commonly
applied 'random innovation'.

Harclearoad, et al. (1969) present an interesting conceptual frame-
work based on a two-dimensional classification (Figure 7). The dimen-
sions range between collegiate and university functions in the vertical
(non—linear) dimension, and between applied and theoretical in the
horizontal dimension. The framework is of particular interest in the
present case for its potential adaptation to the spatial realm.

The works of David Harvey and D. M. Smith have valuable methodo-
logical insights for application into the present study. Their concepts
and adaptations-to-geography are dealt with earlier in the 'theme-
specific' literature section.

Finally, the concept of mobility as a vehicle to offsetting

35

inequality of educational Opportunity is viewed in the light of its

potentially negative consequences by Fleming, Winegard, et al. (British
Columbia study), Rivlin, Harcleroad, et al., Smith and Harvey. This is
another geographic concept which shall be significant in development of

the model.

CHAPTER IV

THE OPERATIONS PROBLEM: REGIONAL EXPERIENCE IN
HIGHER EDUCATION PROGRAM AND DELIVERY

1. Problems in Form

The region for study has been identified. Briefly in summary, it
is separated by distances ranging from approximately 200 miles and up,
from the southern metropolitan region with Toronto at its heart. The
physical character of the northern region is such that the distance
separation is intensified. The 'metropolitan-frontier' dichotomy causes
further exaggeration of the problem. Resources and attendant benefits
derive primarily from the north and accrue primarily in the south. The
irregular occurrence of mineral resources and similar scattering of
optimum site factor combinations for basic production and processing
activities results in occupance pattern yielding low total area density.

The northern region of the province has been very much, historical-
ly, the counterpart of Canada's national northern region. In both cases,
the land area has been subdivided into Administrative Districts with
most administrative decisions being made in the respective provincial
and federal metropolitan regions.

This form-pattern has been reflected in the delivery of social ser-
vices for the northern region of the Province of Ontario, including
education in general, and higher education in particular. Those from

the region qualifying for university opportunity have always possessed

36

37

the option of facing the financial and convenience costs involved in
taking up a minimum three years residence at one of the southern univer-
sity centers. Those unable or unwilling to do so, and still desiring
liberal arts opportunity have availed themselves of an improving combi-
nation of extension services from the south.

Prior to the 1950's, there were a few small colleges with religious
affiliation offering a limited range of postsecondary courses in
Northern Ontario. The majority of candidates undertaking liberal arts
programs while remaining in residence in the north, registered for
correSpondence courses offered by established universities. Credits
thus earned could be augmented by costly travel to these same universi-
ties for temporary residence periods of six to eight weeks during the
summer months.

The catalyst for increasing this type of part-time demand came with
the introduction into the elementary schools of the province of the
'category' system for salary. In this system, teachers would advance
by plateaux, (clusters of university credits, provincial Department of
Education credits, or combinations of the two), to maximum salary levels.
In Sault Ste. Marie, for instance, the increased number of candidates
registered fbr 'extension' courses from the University of Western
Ontario in London. The instructor of each course concerned would visit
the Friday evening-Saturday class sessions on a few occasions during
the September to April term. The balance of course and sessions were
coordinated by a local person with highest qualifications available in
the particular subject area. A number of those involved as candidates
in this approach combined this opportunity with summer residence on

campus to complete requirements for the three year General Arts degree

38

in a three to four year period.

As mentioned in the introduction, the 1960's marked the presence of
higher education 'in situ' within the northern region with legislative
creation of Laurentian University in Sudbury in 1960 and Lakehead Uni-
versity at Thunder Bay in 1962. This physical presence opened access
to opportunity to a considerably larger and more varied clientele group.
The presence was expanded at the two sites and within the region through
processes of amalgamation, federation and affiliation. Again, as men-
tioned previously, these processes bestowed continuing problems upon the
experience. Some of these problems as they relate in particular to the

process of affiliation will be considered in more detail.

2. Problems in Function

The discussion of problems will here begin with the implementation
Of the 'plan' whereby extension of higher education opportunity at the
university level would be affected through permanent regional facili-
ties.

It is well here to note that the concept of decentralization from
the metropolitan south has normally been reflected in the northern re-
gion. It is here that the application of decentralization in higher
education, because of the nature of the university, could cause problems
of function to appear and persist. The application dealt with will be
that which occurred in the eastern part of northern Ontario, incorporat-
ing Laurentian University. This application is the more complex and
the more familiar to the writer.

The traditional concept of university has at its center the idea

of autonomy. Legislative creation of Lakehead and Laurentian in the

39

early 1960's, therefore, decentralized higher education in Ontario into
a region largely non-autonomous with respect to services essentially
under provincial jurisdiction. The two universities, physically sepa-
rated within the region by a distance of approximately 600 miles, would
have little difficulty operating independently of one another.

In the eastern portion of the region, the function of delivering
higher education opportunity was further extended through Laurentian
University by the process of affiliation--with Le College de Hearst in
Hearst, Nipissing College in North Bay, and Algoma University College
in Sault Ste. Marie (Figure 2).

In Southern Ontario, where the university system grew in a region
largely compatible with uniform agrarian expansion and subsequent inten-
sive industrial development, the early period of that growth was marked
by the significant involvement of religious denominations and of the
provincial government, the latter especially where professional educa-
tion was involved. In more recent time, newly emerging institutions
,experienced a period of affiliation, but with a difference from that in
the earlier context.

Implicit in the concept of affiliation is the idea of mature paren-
tal direction offered by a senior established institution to an emergent
institution. For example, the University of Western Ontario provided
this senior function during the emergence of the present University of
Windsor and University of Waterloo.

In Northern Ontario, then, where development requires superimposi-
tion on a framework of scattered settlement nuclei, separated further
internally by a largely inhospitable environment as described earlier,

the process of affiliation was applied with senior-partner status

4O

bestowed upon an institution in its own emergent phase and subject to
its own peculiar growing pains.

The intent here is not to discredit the process of affiliation nor
the parties to this particular application thereof, nor to present it
as the singular problem of function in the context. It should be obvi-
ous, however, that where pre-existing and lasting ties had been devel-
oped with major established institutions (Appendix C, Table 3), and
affiliation was externally introduced into a significantly different
environment, such affiliation could represent the basis for any number

of additional problems.

3. Problems in Perception

 

Any number of problems in perception could be derived from the
present context. In fact, the problem central to the study is primarily
a perceptual one: What will be perceived as the best kind of higher
education organization for the Primary Resource Region? The perception
of this researcher, conditioned by life, work, and academic experience
within a Primary Resource Region, lies at the foundation of this attempt
to justify and devise a spatial/functional model aimed at contributing
to resolution of the question.

The purpose here is to point out some of the errors in perception
which have led to program and delivery problems to this point. The
first of these errors, recurrent in history, relates to the kind of
perceptual inflexibility and lack of innovative design which the systems
kind of planning attempted later in the study is designed to overcome.

From the era of North American colonial experience, it has been

pointed up that the transplantation of institutions from one environment

41

into another would face constraints not anticipated prior to the attempt.
Efforts to establish new Oxfords and Cambridges in the New World envi-
ronment were found impractical, yet such efforts were made. The insti-
tutions were to face such changed variables as clientele groups with
different values, expectations and life-styles, and a society whose
focus was turning upon the urban center (Rudolph, Chap. 1).

The perception of a centralized university to accommodate broad
political areas has underlain perennially expressed ideals. The National
University ideal of George Washington and his successors down to the
time of Jackson (Rudolph, p. 42), the idea of a University of Ontario
(Harris, Chap. 1), and the idea of a University of Northeastern Ontario
(OCUA White Paper, p. 45), cover a span of 188 years and have common
basis in the concept of effectiveness of centralization. In fact, such
perception stands counter to the human realities of provincialism and
sectionalism (Rudolph).

The inability to fit into one's perception the unanticipated
changes which owe their existence to time as well as setting accounts
for additional difficulties in plan implementation. The diminution of
religious influence and affiliation across time concurrent with the
increase of government influence, and the appearanceof new and more
popular fOrms of 'higher education' which compete for the 'scholar and

the dollar' must enter into the planning process for higher education.

4. The Non-System

 

Seldom is the process of education mentioned in the present that
it is not linked with the tenn'system': elementary, secondary, post-

secondary systems; urban, rural, state (provincial), national systems;

42

regional systems, and so on. The use of the linkage is understandable,
but the legitimacy is questionable.

Basic general systems theory identifies the system as consisting
of elements, objects and conditions; the relationship between and among
these; and their relationships with their environment. Systems are
identified as open or closed, as incorporating different kinds of rela-
tionships (series, parallel, feedback), and as being self-regulating in
' the event of interruption.

The problems discussed earlier in this section raise some questions
regarding the system assumption for the educational context. In the
present study, it has been pointed out that the concern is one of making
accessible the appropriate higher education program into Primary Re-
source Regions. Yet, as their name implies, such regions have tradi-
tionally evolved on the basis of an outflow of resources and value added
thereto (including the case of the human resource). Is the operation
of an educational 'system' working at odds with this traditional regional
'system' possible? Further, can the educational 'system' and the econ-
omic system operating between metropolitan and frontier regions be con-
sidered closed and independent of one another? Scarcely, since many of
the current decisions regarding education are based upon economic
criteria.

The university has been considered traditionally an autonomous
institution. This separates it considerably from other social institu-
tions (services) whose form and function are under far more direct con-
trol by government. Yet, the tendency in current programs is to consider
social services as common components in a social service system.

It has been shown that the successful operation of elements, objects

43

and conditions within a given environment will not necessarily be trans-
ported successfully into another environment whose characteristics are
markedly différent. It has further been demonstrated that a process
which governs component-environment relationships will not necessarily,
without adaptation, serve as well in allowing operation of the same
relationship in a different environment.

Throughout the discussion of the foregoing problems, one feature
stands out--that the governing of relationships within the 'system' has
continued on the basis of a 'central place system' assumption. The
problem identified at the outset is one of separation between two re-
gions of markedly different character. Successful rationalization of
the system requires some degree of decentralization. Planning for the
proper degree of decentralization requires consideration of the degree
of change in the institution, its fit into the different regional con-
text, and its continuing interaction with the traditional model from

which it has derived.

CHAPTER V
THE IMPORTANCE OF HIGHER EDUCATION TO REGIONAL DEVELOPMENT

The process of regional development within the Ontario experience
can be viewed conveniently in two time frames. The first period selected
is that of the last and first decades of the nineteenth and twentieth
centuries respectively. It was during this time that Ontario's develop-
ment tradition became established. The development concept was essen-
tially an economic one, and the role of education was supportive of this
bias. The almost exclusively economic dimension has largely prevailed.

’ Ontario's development focus has been a dual one, made necessary by
the physical and resource separation made evident and emphasized earlier
in this study. Development south of the Canadian Shield occurred with
a dominant focus upon the land resource as required for agriculture, and
later urban-industrial growth. The generally thin and stony soils in
the Shield area turned the focus to the forest, mineral, and water re-
sources of that area, and later to those scattered sites associated with
the basic processing of area resources.

The second period selected for consideration can be termed that of
the contemporary view. It was formally introduced in the Ontario con-
text by the Prime Minister of the province on April 5, 1966, in a state-
ment entitled Design for Development. Still mainly economic in its
substance, the document expresses the government's intention to forma-

lize and diversify its development efforts.

44

45

In the earlier period, government intervention into the devalop-
ment process through its influence on higher education took the form of
direct funding. This largely unsolicited funding was labelled for cre-
ation of professional programs seen by the government as necessary in
advancing the economic development of the Shield area's resources.

In the latter period, government's stated intention, from the out-
set, has been to encourage, directly and indirectly, the realization of
social equity for the northern region, in addition to the realization
of economic benefits for the provincial treasury. Of primary signifi-
cance to the present study is the potential meaning of this philosophy.
Its implementation can alter the traditional single-direction transfer
of resource benefits out of the northern region of the province into
the Southern Ontario heartland or across the border into the United
States. This study concentrates on the challenge facing achievement of
greater equity as it applies to the traditionally least emphasized
resource—-the human resource--and the kinds of organization for higher
education through which part of this development objective might

rationally be attained.

A. TRADITIONAL VIEWS

The attitudes which have emerged (traditionally) as expressed
views on development for primary resource regions like northern Ontario

need to be considered in two categories.

1. External

This category incorporates those attitudes characteristic of

nations, governments, financiers, industrialists, and other interest

46

groups whose perception of the region has been its convenience as a
storehouse of resources which may be tapped to serve as the basis for
industrial economy.

The result has been the creation of global and local patterns of
physical resource 'extraction-transport-production- value added—
consumption-disposal' dominated by minimal 'origin area' benefits and
maximal 'recipient area' benefits. These patterns have linked urban-
industrial core areas to resource frontiers or economic colonies both
internal and external to the jurisdictions exerting control.

The role of governments relative to such spatial patterns has been
mainly to referee the interaction of various interest groups, including
themselves, in seeking to optimize benefits derived from resource pos-
session and use. In Ontario, the government retained ownership as well,

as related by Nelles (1974).

From the outset the unoccupied region of what was to
become Ontario had been thought of in propietary terms.
These 'waste lands of the crown' existed to be admini-
stered in the interests of the state, either as a
source of war materiel, revenue, or as a repository
fbr settlers. Through an accident of geography much
of the natural wealth of this community, its water-
powers, minerals and forests, was to be found on these
lands. How these resources were to be allocated and
how public and private claims upon them would be
balanced become, therefore, important political
questions. (p. 2)

The infrastructure associated with these 'waste lands of the
crown' has developed in a fashion consistent with the view reflected
above. Transportation corridors follow lines of least topographic re-
sistance and focus on the metropolitan south. Financial services are
extensions of those developed in the south. Social services and facil-

ities are usually carbon copies and extensions of those developed

47

within and for the metropolitan region.

The external traditional view of the human infrastructure has been
that it should be adequate to serve the region's function in the above-
mentioned transfer pattern. Where environmental conditions are least
hospitable and where isolation is most extreme, social amenities deemed
necessary for the contentment and well-being of regional residents have
been provided in unique 'company towns' or government designed and
facilitated 'improvement districts'. In such cases, these have been
viewed by the external interest groups as essential in gaining and
maintaining maximum production of the resource(s) involved.

Until the 1960's, the population resident in Northern Ontario had
direct access to educational opportunity up to the secondary level only,
with the exception of small Roman Catholic colleges in Sudbury and
Hearst. This was again consistent with a traditional external view
which held that resources from the region would most logically have the
bulk of value added outside the source region. "Within those two de-
cades (1890-1910) Ontario had acquired a new image of itself. The
barren north suddenly became New Ontario and the province an Empire."
(Nelles, p. 51)

In order that resources of this 'barren north' might be tapped,
maximum productivity and limited processing, combined with the external
view, left the concept of access to formal education beyond the second-
ary level with a low priority. As mentioned previously, those desiring
postsecondary opportunity were required to leave the region for
'tertiary processing'. Again, the straight line system of resource
movement was reinforced, with the larger portion of those involved re-

maining to add the benefits of this processing to the metropolitan region.

48

Within the external perspective of development for the primary re-
source region, the use of education by the Ontario government is identi-

fied by Nelles in his chapter entitled Promoting New Ontario.

In this development process government agencies acted
as intellectual entrepreneurs, carrying information,
ideas and opportunities to labour and capital. The
continuous stream of infOrmation and statistics . . .
had as its prime objective the education of domestic
and foreign capital. Then, to render the eventual ap-
plication of capital to resources as effective as

. possible the government adjusted the formal education
system to improve the professional and technical skills
of the labour force. Finally, the publicity of govern-
ment agencies and its echo in the press strove to
heighten popular awareness of resource development
for the long range purposes of broadening the horizon
of acceptable occupations and loosening the conser-
vative savings and investment patterns as well as for
the immediate purpose of explaining and justifying
public spending. Education, in this broad sense, thus
became the most dynamic and probably most permanently
Influential of the state's promotional functions.
p. 152

Specific to higher education, applied utility was recognized as
the application of professional expertise to insuring the best possible
efficiency in realizing maximum quantity in resource extraction. The
professions emphasized, therefore, were those related to the Shield

area's dominant resources--timber and minerals.

In the universities . . . the provincial government
also established schools of mining and forestry. . .
the Mowat government supported the foundation of the
Kingston School of Mines in 1893 with a $5000 annual
grant. (This school later became affiliated with
Queen's University.) . . . Although the University of
Toronto had offered geology courses for some time

. . . the imperatives of inter-university rivalry did
not force the creation of a chair of mining and
metallurgy until 1908 . . .

In 1901 he (W. L. Goodwin) had the terms of reference
of his own (Kingston) School of Mines expanded to en-
compass forestry education, and it was at Goodwin's

49

invitation and at his institution that Bernhard Fernow,

.the most distinguished of American foresters delivered

his famous "Lectures on Forestry" in 1903. Such vigor-
ous activity at Queen's provoked an immediate response
at the University of Toronto which announced a one-
year diploma course in forestry in 1904.. (A Royal
Commission Report) brought down in 1906 strOngly urged
the government to provide the university (of Toronto)
with sufficient funds to establish a forestry school

and one year later just such a faculty was created with-
in the reorganized University of Toronto, with Bernhard
Fernow as its dean. (Nelles, p. 143)

During the period in which such traditional views as the foregoing

prevailed, the essential function of education was to reinforce those

views.

2. Internal

Internal traditional views have had their character largely moulded

on the physical separation from the antecedent area of settlement and

the inhOSpitable qualities which delayed initial development of Northern

Ontario.

sally.

Such has been the case with primary resource regions univer-

. . many Australian writers agree that a strong
feeling of group solidarity and loyalty developed
out of the sense of isolation in the bush. . .
(this also underlay the) already strong feeling of
mateship and their propensity to mutual aid.

(P. Jones, p. 18)

Such expressions of cooperative outlook may be taken as a second

stage of perception development in the resource frontier, and build

logically upon the initial concept of individual versus challenges of

a hostile environment. This initial concept is well elaborated upon in

the U.S. experience by the historian Frederick Jackson Turner (1893) in

his 'frontier thesis' and by the cultural geographer Wilbur F. Zelinsky

(I973)in his perception of American cultural attributes.

50

In the northern Ontario context, there were these same environ-
mental processes working to establish outlook and views different from
those earlier peculiar to the agricultural yeomen of the southern
region. Those who would cross into that separated region described
earlier responded to a variety of pull factors: free or low cost land
grants rendered more appealing by a government program of designing and
building colonization roads into apparent potentially productive agri-
cultural areas; the lure of instant wealth associated with the discovery
of minerals; employment in the lumber camps and mining camps; and oppor-
tunities to provide services for those in the other categories. In many
instances, the environment made involvement in one activity sufficiently
marginal that the individual was seasonally or periodically engaged in
another. Such necessity is not uncommon in the area to the present day.

Also in the Northern Ontario context, there were processes present
and different from those in similar separated frontier regions in other

settings.

Precisely because the Shield laid down a definite and
underlying boundary to the limits of prime arable land,
it frustrated the application in Ontario of a unitary
socio-political conception of the environment similar
to the agrarian homestead which so radically affected
American resource alienation policies. (Nelles, p. 42)

What was described earlier as a clear—cut. dichotomy between the
two parts of the same political unit increasingly exerted its impact on
the emergence of 'socio-political conceptions of the environment' as

they became interpreted into constraints awaiting settlers.

The possessive individualism of an agrarian frontier
made incursions upon, but did not eliminate, the tra—
dition of crown ownership. In the woods and the
forests the rights of the crown were not those of
eminent domain; they were proprietary. The late

51

nineteenth century homestead farmer on the northern
Ontario frontier neither owned nor had prior right to
the pine growing on his land (beyond what he needed
for his buildings), the precious minerals beneath the
soil, or the waterfalls in his river. These natural
resources remained the property of the crown and
their use was regulated by statute in accordance with
prevailing notions of the interests of the state.
(Nelles, p. 2)

For the new breed of people facing the inhospitable new environment,
largely engaged in subsistence activity as Opposed to the commercial
activities Of the southern region, so called 'need' for secondary and
postsecondary educational opportunity would be a gradually developing
perspective. The relative instability and uncertainty of existence com-
bined with transportation technology which made the concepts of
'Southern Ontario' and 'university' remote images to most, made access

to such opportunity a reality shared by few.

B. CONTEMPORARY VIEWS

Counted among those forces which have served to alter traditional
views of development in Primary Resource Regions (and associated signi-
ficance of higher education) in general, and for Northern Ontario in

particular, are the following:

- transportation technology and personal mobility which
have reduced dramatically the effect of distance and
therefore the concept of remoteness

- universal transitions in higher education from elite
to universal to mass, and from privilege to right to
obligation

- mid-20th century phenomena, especially World War II,
creating new social awareness, social consciousness,
and social conscience

- the growing wave of egalitarianism and its broadening
of the definition of freedom beyond political terms

52

- the rise of 'quality' values to challenge 'quantity' values
in the area of development, peaking with the environmental
movement of the 1960's

- increasing complexity in resource extraction-transport-
production-disposal processes calling for increasing skills
and technological/political/social/individual innovative
capacity

- unanticipated crises exerting real and potential impact

upon complex, vertically-integrated systems: (economic
downturn, enrollment decline, . . .)

As components in the massive change in perception/values systems,
these representative forces are clearly and strongly interconnected.
Higher education faces the present dilemma of maintaining its social
leadership role with a creativity and flexibility capable of conforming

to the impact of the multiple forces and changing views.

The question is whether a society that has been con-
ditioned to value higher education for its economic
benefits will at last value higher education for its
contributions to the personal development of indivi-
dual human beings and to the creation of a humane
society. The true crises faced by U.S. higher edu-
cation today is whether this transition can be made

. It (the possibility) could mean that higher
education will be focused increasingly on development
of intelligent and humane people and on the advance-
ment of a rich civilization rather than on economic
development. (Bowen, 1975, in concluding observations)

The latter chapters of this study, assuming that creativity and
flexibility will meet such challenge and focus as it applies to effec-
tive program and delivery for a primary resource region, will incorpo-
rate suggestions for building these features into the present 'system'

in Ontario.

1. External

The external contemporary views germane to the present discussion

find consolidated expression in the efforts of the provincial government,

53

since 1966, to construct a DESIGN FOR DEVELOPMENT for all regions of
Ontario, including northeastern and northwestern. The intended design
is largely structured on the ideals contained in Bowen's observation,
and a consolidation Of principles, goals, and objectives from the first
three design reports is presented in Appendix III.

Briefly, the broadening of government views from the aforementioned
narrower economic perception is readily apparent in such expressions as
the fOllowing from Ontario's Design for Development Reports (1966, 1971,
1976 respectively).

- this government accepts the responsibility of guiding,
encouraging and assisting the orderly and rational de-
velopment of the province . . . we believe that our
efforts should be complementary to the private sector
of the economy in helpin to create an atmosphere for
growth and development. (1966, p. 2)

- two of our principal objectives . . . provision of the
best possible environment for our peOple . . . creation
and maintenance of an atmosphere which will encourage
the economic growth and development throughout the
province . . . both qualitative and quantitative bene-
fits to all people in the province. (p. 3)

- The need for postsecondary education . . . is pressing.
Increased public investment in education in the lowerb
income regions of Ontario is perhaps the best long-run
key to development. (p. 9)

At all times, we shall be seeking means for ensuring
that people in all parts of the province share in the
benefits of economic and social development . . . .

(p. 24)
7.EDUCATION

Goal: To provide opportunities and encouragement
for each individual to achieve his highest potential of
intellectual, personal and social development.

Educational facilities and level of attainment
are continually improving in Northeastern Ontario, al-
though the region is still well behind other parts of
the province. (1971, p. 242)

54

c. EDUCATION

24. The province should continue the development of
community-based education through broad community repre-
sentation and through retention of existing schools.
(1976 (a), p. XVII)

B. The Social Strategy
1. Social Development Goals

- The four major urban centres of Sudbury, Sault
Ste. Marie, North Bay, and Timmins have social
infrastructure similar to those of other major
cities in the province . . . the strategy also
emphasizes the service role the large centres
must play in providing many of the higher level
social facilities (postsecondary education,
specialist medical services, broadcasting facil-
ities, etc.) required by the rest of the region.

6. EDUCATION

- Such responsiveness relies on decentralized ad-
ministration, community-based delivery, oppor-
tunities for participation, and a strong
commitment to formalized continuing education.
(1976, p. 49)

For its part, industrial enterprize and some service sectors, in
response to increasing social demand and to complexity of operation, as
well as to demand for higher level knowledge and skills within labour
force, have taken a supportive stance with respect to postsecondary edu-
cation, including incentive to employees to improve academic standing.

The public-at-large and educational sectors, apart from government,
must exercise the leadership role in altering traditional external

perspective.

The number of full-time equivalent university level
researchers in the Northern part of the Province is
clearly inadequate if this region is to break free
of the exploitive pattern of development experienced
in the past. The diminishing base of funding for
the universities means that even if adequate research
grants were to be available there will not be suffi-
cient manpower to take advantage of them, and the
opportunities for breaking economic patterns which
have held Northern communities at a disadvantage in
the past will be missed. (OCUFA Brief, p. 12)

 

 

55

2. Internal

The traditional internal view toward development and higher educa-
tion was earlier portrayed as being strongly conditioned by such forces
as 'frontier mentality', crown ownership of resources, contrast in
regional physical identity, extraction and primary processing, isolation,
and work/income instability.

These conditioning forces as applied in the Northern Ontario con-
text have been subject to considerable alteration.

Levels of income and working security as well as work-related bene-
fits, have improved considerably, largely through the efforts of organ-
ized labour in the resource-oriented industries of the region. A side
effect which should be mentioned has been the increase in intra-regional
disparity between the urban centres where industry is concentrated and
the inter-urban non-industrial areas. Working to counter this disparity
has been the increase in government subsidy, incentives, consultation
services, extension services, and welfare services outside the industrial
areas.

The transition from the narrow economic to the broader quantitative
‘ggg qualitative emphasis in development has, in fact, served to trans-
late negative aspects of the environment into positive assets. This
'transition has been enhanced by the widespread increases, at the personal
level, of mobility, di5posable income, and leisure time. Together,
these have turned the attention of an increasing seasonal resident/
itinerant visitor population from Southern Ontario, the United States,
arui presently even from Western Europe, upon the qualitative dimensions

of the regional resource base.

56

This base is still positioned on the same resources--rocks, trees
and water-~as in the traditional sense. However, their attractiveness,
while still deriving from minerals, lumber and pulp, and hydro-electric

power, has appealed to the increasing market population in terms of

- scenery composed of an infinite variety of changing topo-
graphic conditions

- predominantly forested inter-urban landscape

- clear (and naturally potable) waters in countless and
accessible lakes and rivers

The same combination which provides resource for the passive viewer
provides also (with the pronounced seasonal change) for the preferences
of increasing numbers of anglers, hunters, alpine and cross-country
skiers, hikers, water-sport enthusiasts, rock-hounds, and naturalists.

The new perspective of resource utilization possesses the potential
of altering the earlier described straight-line, single direction flow
of benefits derived from regional resources to external areas. Most of
the new uses are based upon quality rather than extraction, and most
represent 'in situ' utilization. The resources and their quality are
increasingly exported as the subject of recollection or photographic
record. The renewability of resources is no longer a matter of animal-
vegetable-mineral origin: renewability becomes increasingly a matter
of management. Informed management of resources requires kinds and
levels of expertise not associated with traditional resource use. This
will be recognized increasingly by inhabitants of the region as a part
of the more and more complex potential offered by the resources surround-

ing them, and will place increasing demands upon higher education.

. . Northerners have a substantial store of factual
knowledge about the renewable resources that are the

57

basis of their livelihood. But they sense, correctly,
‘that they have much to learn in systematizing and in-

terpreting their knowledge so that it may be used for
management. (Larkin, 1976. p. 20)

The increase in demands upon higher education will be more than
quantitative. Properly engineered for optimum benefit to the region,
response to demand must combine that part of the traditional and that
part of the innovative that can best enable the systematizing and inter-
preting of knowledge referred to here.

As the major centers of the region experience most of the region's
growth, residents come to recognize the complexity that accompanies
urban growth and development. Rational expansion requires new knowledge
for creation of master plans, extension of services, adjustment to chang-
ing preferences and life styles, accommodation of urban social-service
functions, catering to seasonal visitors, and so on. Again, knowledge
of the environment requires combination with the ability to systematize
and interpret that knowledge. Effective organization of higher educa-
tion,which develops a cadre of residents possessing both, emerges as
potential and preferable practice to that of relying on consultation by

'experts' 'parachuted in' from a different region with a different

environment.

The universities and university colleges of Northern

Ontario are not only resources which could profoundly
alter the economic circumstances of the region, they

also represent and convey standards of excellence to

Northerners. In this respect it is critical that

quality programs continue to exist and are streng-
thened. (OCUFA Brief, p. 12)

The major centers of the region have approached or passed the

100,000 population mark.

58

It may be reckoned that a city with a population of
-100,000 will produce rather over five hundred students
for a university in that city. A considerable number
of these will be young people who would not or could
not, have gone away to university. The establishment

of new universities, while serving more communities
and equalizing educational opportunity would also in-
crease the total scope of the problem in the difficult
years just ahead . . . (Woodside, 1958, p. 112)

This concept is a rational one when considered in light of the
nature of settlement patterns in Northern Ontario, and in light of the
reliance for responsiveness upon decentralized administration and
community-based delivery. It leads to the latter recommendation calling
for a system of Universitje§_of Northern Ontario.

In addition to the ascribed qualities of rugged individualism,
group solidarity, and loyalty developed out of a sense of isolation,
resource frontier residents and communities have characteristically ex-
hibited those qualities of provincialism and sectionalism earlier men-
tioned. The latter qualities, taken as parallel to parochialism, were
there suggested as standing against the concept of a centralized univer-
sity serving to accommodate broad political areas. While these are not
generally taken as admirable qualities, they nevertheless exist in the
scattered urban nuclei of the Northern Ontario Primary Resource Region.
The failure of a process (affiliation), applied successfully in South-
ern Ontario, to function as smoothly in the northern context, was
partially ascribed to other conditions earlier. To those, among others,

the above characteristic quality can be added. As suggested earlier,

. spatial solutions to inequalities are, in them-
selves, insufficient. They may be ideal for reducing
some inequalities, . . . but they do not attack the
causes . . . But spatial planning is a necessary com-

ponent of any overall policy . . . (Coates, Johnston,
and Knox, p. 4)

59

The present study has thus far emphasized the physical and socio-
environmental separation existing between the northern and southern
parts of the province. It takes the hypothesis that a very real part
of the improvement in organization of the province's higher education

'system' resides in spatial solutions and spatial planning.

CHAPTER VI
SELECTED POTENTIALS FOR IMPROVED ORGANIZATION: A FRAMEWORK

. . universities, like individuals, are dynamic
living systems that undergo change in the context of
changing social conditions. In order that such
systems be able to survive, they must be responsive
and adaptive to changes in their external circum-
stances or environment. (Buss, 1975, p. 429)

Increasingly in the 1970's, writers and researchers have indicated
growing awareness of the organic nature of the higher education 'system'.
From this perspective and from recent emergence out of the 'quantitative
revolution', one becomes more conscious of the need for systematic
analysis of the system (organization), its climate, the environment
within which the climate originated and evolves, and the interrelation
between climate and environment. Further, because of the organic nature
and the inevitability of change, there is also need for examination of
the characteristics of change components, and of the impact of change
upon its agents and upon those affected. (Zaltman, et al., 1977).
Analysis/examination becomes less rigidly mechanistic and more flexibly
humanistic as the environment of change becomes less economic/quantitative-
oriented and more people/qualitative-oriented.

In dealing with these systems and various dimensions of their dyna-
nfics, different writers and involved groups have considered ideas, pro-
cesses, frameworks, techniques, and concepts basic to analysis/examination
as described. The better of these may be viewed as potentials for

improvement in the operation of the system under study. This section

60

61

will identify and briefly assess some from among such potentials in the
light of their appropriateness to the spatial separation problem identi—
fied for Northern Ontario, especially as it impacts upon higher educa-
tion. The fOllowing chapter will propose a normative/descriptive model
(and underlying constructs) which synthesizes from the potentials and
faciIitates improved system function.

Such a model will necessarily reflect consideration not only of
separation, but also of other conditions--less visible but nevertheless
significant--which have served to intensify its seriousness. (Expressed
another way, it will reflect consideration of some of the questions
without benefit of which many of the answers to date have been offered.)

Briefly stated, such conditions might include:

- geographic proximity of parts of Northern Ontario to other
jurisdictions (Michigan, Minnesota, Wisconsin, Manitoba)

- cultural proximity of parts of Northern Ontario to the
Province of Quebec

- 'access to institutional-proximity' to Manitoba and Michigan

- 'legislatively created proximity':in-state tuition for
Northern Ontario students at Lake Superior State College
in Michigan

- residual and continuing sentiments and loyalties dating to
the higher education servicing of Northern Ontario by
'extension' programs from Southern Ontario universities
(Appendix C, Table 2)

- student momentum possessed relative to established insti-
tuitions and overriding recently established 'intervening
opportunities'

- economic costs incurred with travel/accommodation for
study at established southern institutions and therefore,
maintenance of 'elite' practice within a framework of
'democratic' philosophy

- social costs incurred with disruption of family ties and
vocational circumstances; impact of change upon sense of
community and self-identity

62

- heterogeneity of student body composition on the increaSe
(in terms of age, ability to pay, academic background,

- the transport of past practices (affiliation, funding) not
inclusive of adjustment to realities of new environment

- Cameron's 'crisis of authority' atmosphere (declining in-
fluence of church and family) within which recent numerical
and territorial growth has occurred

- 'exclusivity of program' concept recognized widely during

evolution of Southern Ontario 'system' and narrowly during
evolution of Northern Ontario 'system'

This brief overview of conditions, all with spatial implications,
serves to illustrate another feature of potentials to be selected and
dealt with: optimum model design must embody awareness of the complex
need for organizational improvement as it applies at the local, regional,
provincial, national and international levels. Because of obvious
practical limitations, however, selectivity in this study will assume
primary emphasis upon the regional and provincial levels, with secondary
inclusion of others.

The point of view in what remains to be presented is, as Harvey
describes, that of one of "those who have lived and worked in a commu-
nity (region) for a long period of time (and) are often capable of draw-
ing upon their experience to provide subjective assessments which are
nevertheless good indicators of need". (p. 94)

The following is presented as a framework for potentials which are
recognized as being basic to change. Sample potentials for overcoming
the spatial/philosophical separation problem can be perceived on the
basis of

1. Spatial constraints/liabilities
2. Spatial opportunities/assets

63

Extent to which items under (1) are convertible to (2)
Assumptions made

Degree of desire for reorganization and restructuring
Time frame for reorganization and restructuring

Logic of program exclusivity/sharing

Contribution to social well-being (distributive justice)
Available 'benefits from past experience'

10. Currently expressed principles re higher education

11. The practice of 'politics of the possible'

12. Quantitative to qualitative transition in values

13. The centralization/decentralization debate

14. Technological assets/liabilities

Perisher?

1. Spatial Constraintleiabilities

Distance defined in terms of access to desired opportunity is the
most obvious of the spatial constraints/liabilities for a primary re-
source region. It will be used here as representative. This distance
is generally conceived of as a linear concept, and therefore is viewed
as operating at the provincial or higher levels. However, distance ef-
fect may be intensified by a variety of physical/social factors,
(terrain, climate, time-off-work, transporation costs, . . .), thus in-
creasing distance-significance at local and regional levels.

Various potentials have been related to this distance constraint.
These range from scholarships, bursaries, awards to compensate for
travel and accommodation costs, to the offering of correspondence/exten-
sion courses, to the provision of on-site facilities and faculty.

The most recently promoted potential, articulated by the Ontario
Council on University Affairs, is the structuring of delivery through a
University of Northeastern Ontario, integrating Laurentian University

and its affiliated university colleges as a 'system'.

64

with four, or even more, campuses to serve the needs
of the region. Faculty would be assigned, and pro-
grams offered, on a pro-tem basis in response to
local needs. (p. 45)

Assessment of this potential immediately arouses the following con-

cerns, with

perpetuation of the concept of centralized authority

perpetuation of an unfortunate 'in loco parentis' role
for Laurentian University introduced with the previous-
ly discussed 'poor fit' of the affiliation process into
the Northern Ontario situation

perpetuation of the same short sightedness toward the
northern context displayed by the provincial government
since the creation of the College of Applied Arts and
Technology system; (recently expressed concern for
'avoidance of fixed instructional resources' in the
north in the university sector, almost simultaneous
with the announcement of a $2.3 million expansion pro—
gram at Sault College in Sault Ste. Marie)

perpetuation of the myth that 'needs' are a latent
phenomenon within a given setting, requiring only the
appearance of expertise and facilities for spontaneous
expression

perpetuation of the myth which holds that a structure
consolidated in name can overcome the 'group solidarity
and loyalty' phenomena born of isolated existence in
frontier areas

perpetuation of spatial subdivisions which ignore homo-

geneity, but satisfy convenience (focus on Northeastern
Ontario instead of Northern Ontario)

2. Spatial Opportunities/Assets

 

Through spatial organization of territory, it frequently happens
that primary resource regions, while remote in terms of linear distance
from the metropolitan region of their own jurisdictions, may be rela-
tively convenient access-wise to metro areas or service facilities of

another jurisdiction. This occurs in consideration of jurisdictions to

65

the international scale. The city of Sault Ste. Marie, in northern
Ontario, is almost 200 miles distant from the nearest chartered univer-
sity in northern Ontario, and over 350 miles from the nearest southern
Ontario university. It is less than two miles distant from the campus
of Lake Superior State College in Sault Ste. Marie, Michigan.

In a recommendation related to this apparent Spatial asset, the
Third Report of the Royal Commission of Inquiry: Algoma University Col-
lege, (June 30, 1977), reads

that Lake Superior State College and Sault College of

Applied Arts and Technology be acknowledged as those
institutions reponsible for undergraduate education
(in the region, following closure of Algoma University
College): the former in the area of arts and science,
the latter in the area of applied arts and technology.
p. 52

There are implications in this recommendation whose impact would
have rendered impracticable the formation of the also recommended 'Sault

Region Education Planning Council'. Such implications include the

assumption of higher education functions by an insti-
tution operating on the basis of (1) input from an
entirely different secondary school system, and (2)
guidelines derived from an entirely different legis-
lative system

lack of appreciation of constraints facing assurance
of adequate Canadian content in degree programs at
a U.S. institution (an implication which touched off

the strongest widespread reaction to the commission's
recommendations)

The point to be taken here is that measures such as inter—system
and international cooperation may be possible and desirable, but must be
considered in the light of this and such other categories of potentials
as time frame, currently expressed principles of higher education, and

politics of the possible.

66

Without such cross-system-potential consideration, enrollment-
driven funding used by itself as an action-criterion over the short run

will lead to unfortunate consequences.

Program redundancies will have to be declared which,
in a short-term financial crisis, will strike down
those parts of the university enterprise which are
apparently least cost effective but which are at the
same time most essential to the true nature of the
university conmunity. The natural evolution of
discipline groups will be interfered with; forced
marriages of disparate entities such as universities
and community colleges may occur; and the temptation
to view affiliated colleges as 'overflow plants' to
be closed down as demand falls will become too strong
to resist. (OCUFA Brief, p. 12)

3. Extent to Which Items Under (1) are Convertible to (2)

Keeping in mind that education 'systems' are, (or should be),
dynamic and organic sets of elements and relationships, one is constantly
aware that there is potential for moving conditions from the constraint]
liability category to the opportunity/asset category. This alteration
will occur under the influence of general social forces (values and at-
titudes) over brief or prolonged time periods. It will also occur as
a result of purposeful trends and events in the areas of politics, econ-

omics, social well-being, and community interest/action.

Changes in the organizational structure of postsecond-
ary education occur by slow evolution. Rarely are
dramatic innovations launched from within the institu-
tions of higher learning themselves. As institutions
perceive changes in external circumstances in the gen-
eral economic, social, cultural and political setting,
they recognize the need for some new or anizational
response. (Martorana and McGuire, p. xi?

Alice Rivlin suggests as one of her models for improving the effec-

tiveness Of social service delivery the community control model. The

67

practice of community—based delivery is also included among the objec-
tives of the Ontario 'Design for Development', and various other sources
cited in the review of literature earlier.

The whole concept of community-based delivery/community control is
philosophically consistent with Martin Trow's 'most significant secular
trends' (growth, democratization, and diversification). It is politi-
cally consistent with the recognition of need (Lappin) to create within
people of Knox's 'territorially discriminated against' regions a
'spiritual vitality' linked with participation, in place of 'spiritual
poverty' linked with separation and isolation from opportunity. It is
temporally consistent, and 'climatically' consistent, with the transition
from economic/quantitative orientation in development to people/qualita-
tive orientation. Finally, it should be consistent with the application
of organizational change models, such as the Proactive/Interactive
Change Model of Zaltman, et al. (See Figure 8), and the model proposed in
the next chapter of this study.

I The above are presented as representative of the numerous general
and specific forces within the social environment which possess singly,
and in combination, the potential for transforming spatially-related lia-
bilities such as isolation into assets based upon independent thinking,
involvement, and decision-making within non-metropolitan regions.

The Ontario 'Design for Development Strategy' (1976a) points out that
major urban centres of the (Northern Ontario) region have the "emphasized
service role . . ." in providing many of the higher level social facili-

ties "including postsecondary education".

68

4. Assumptions Made

 

It would seem reasonable to consider next some of the potentials
for improved system operation as they relate to certain spatially-
associated assumptions. There are among these assumptions some which
are soundly reinforced by empirical evidence.

Engin I. Holmstrom points out that the term 'student' has come to
represent in recent decades, (concurrent with Trow's democratization
trend), an increasingly complex group of individuals. Trow himself
breaks down the growth phenomenon relative to student populations into
separate components which have each generated their own problems: rate,
size, age grade/cohort. With some degree of geographic bias, he might
have been inclined to add distributive imbalance/injustice. This was
subsequently done by Harvey.

The Report of the (Winegard) Commission, (British Columbia study
1976), expresses an assumption which is central to the whole issue of

social service delivery for non-metropolitan regions.

These graduates (of Interior institutions) appear to be
more prepared than do the metropolitanly trained stu-
dents to pursue long—term careers in the smaller cities
of the Province. (p. 32)

This speculation addresses strongly the potential for fixed facilities
in enhancing qualitatively agg_quantitatively the improvement of the
whole social service delivery experience within the primary resource re-
gion. The proportion of 'non-traditional' higher education students has
a tendency to run higher in such a region. Their freedom to be mobile
is generally less than that of the traditional student. These factors
combined with the strong potential just cited underline the need for

greater distributive justice.

69

5. Degree of Desire for Reorganization and Restructuring

 

In 'The Northern Dilemma', Cameron discusses the zeal with which
groups in such Northern Ontario centers as Sault Ste. Marie, Sudbury
and North Bay sought to establish 'in situ' access to higher education
.within the region. Their efforts were responsible for the regional
'system' as it exists today. This may be taken to represent the spatial
'base line' of degree of desire.

Subsequent to the December 13, 1977 announcement of closure for
Algoma University College, these earlier efforts were reinforced by a
demonstration of concern from across the community, a demonstration
which was significant in bringing about the 'stay-of—execution' granted.
Also, the Province of Ontario has expressed its desire for and commit-
ment to reorganization and restructuring in the various reports on the
Design for Development program (Appendix 0).

Alice Rivlin emphasizes the desirability Of the federal government's
taking strong leadership in the organization, funding, and evaluation of
'systematic experiments' into various ways of delivering social services
(including education). She stresses the gains made with such federal
involvement in, and commitment to, the areas of nuclear energy, space,
and other fields, and asks whether education is not deserving of
similar attention.

Interest has frequently been expressed as to the opportunity for
innovation in the area of international education at a site such as Sault
Ste. Marie. The interest found expression in the report of the Royal
Commission on Algoma University College. Details of the recommendation
were unfortunate and untimely, and lead logically to consideration Of

potential in terms of time frame conditions.

7O

6. Time Frame for Reorganization and Restructuripg

Improvement in the delivery of higher education opportunity into
Northern Ontario will require that identification of potentials be or-
ganized clearly on a time frame for consideration and for expectations
regarding achievement. Normally, placed on a spatial scale, this time
frame would call for initial consideration of those potentials which
apply at the local level, and later consideration correspondingly for
the regional, provincial, national, and international levels.

In fact, the time scale and the spatial scale are not easily separ-
able. Moreover, neither is easily 'orderable'. Since we are dealing
with an 'organic' system, the logic of orderly sequence cannot be expec-
ted to hold. With the need for qualitative considerations and the con-
current calls for education as a 'preparation to live a life-~a creative,
humane and sensitive one' (Silberman, 1975, p. 57), it will become in-
creasingly common for traditional structures designed for different
'climates' and environments to fall short of potential for imaginative
and responsive programming.

Potentials for responsive program will have to be allowed a degree
of 'free-floating' status, just as faculty will become 'increasingly
members of a free-floating profession' (Kerr, 1972, p. 10). These situ-
ations possess special implications which will defy time scheduling and

accuracy of prediction.

7. Logic of Program Exclusivity/Sharipg

Kerr suggests that 'the university needs to create for faculty an
environment that gives a sense of stability, security, continuity and

equality' (1972, p. 95). It goes without saying that the other

71

constituencies of the academic community and the public at large, will
become increasingly concerned with these qualitative characteristics as
they apply to higher education and access thereto.

For the primary resource region in particular, there has been pre-
sent in the traditional structure and programme (in their spatial exten-
sion) little evidence of any of these qualities. This would appear to
legitimize a search for potentials which can give to nothern higher ed-
ucation the maximum possible levels of stability, security, continuity

and equity.

Long-term stability, through adequate protection from
economic vicissitudes of a resource-based area, is
essential if further progress is to be made. (OCUFA
Brief, p. 11)

Two potentials come to mind immediately. The first is suggested by
what is prObably the closest to a stable program in the north at present
--the Forestry Degree program at Lakehead University. The stability
virtually assures the other qualities. From the granting of its charter
in 1962, Lakehead University has had exclusive right, apart from the
University of Toronto, for the offering of this programme. There is
potential for logical application of this same kind of arrangement else-
where in the north.

The second such potential has to do with a unique structural ar—
rangement. This would lead to a multiple cooperation/affiliation/sharing
arrangement fbr each northern institution with southern 'majors'. The
advantages to be realized would include not only institutional stability
but also a degree of 'system' stability. Such an arrangement would
4 introduce the 'attraction' power of established traditional programme

components (identified with the 'majors'--Appendix C, Tables 1, 2 & 3)

72

into northern centers, provide specific and more predictable movement
Of students for senior/graduate/professional opportunities in the south
(thus reinforcing and stabilizing the concept of 'provincial system of
higher education'), and would provide an interesting environment for
_innovation.

Combination of these potentials with others similar would allow for
some interesting 'system rationalization' possibilities. Specific exam-

ples are dealt with in the next chapter.

8. Contribution to Social Well-Being

There are a number of respects in which improved higher education
access/equity has potential for positive contribution to social well-
being in the Primary Resource Region. Lappin would see it as going far
toward reducing 'spiritual poverty' within such a region. The Science
Council of Canada would recognize it5 value in providing for those who
already possess abundant knowledge of their resources the ability to
'systematize and interpret' that knowledge.

Robert Maynard Hutchins indicates, like Lappin, preference for a
kind of 'spiritual revolution' through education. This kind of revolu-
tion is taken here as being analogous with Lappin's idea above: a revo-
lution leading to the elimination of a poverty of spirit which has come
to be appreciated by some as the most significant criterion of poverty
in the Primary Resource Region. The potential for an appropriate higher

education system to encourage this kind of revolution is great.

9. Available Benefits from Past Experience

As early as 1797, the legislative assembly of Upper Canada (later

73

to become the Province of Ontario), in petitioning the crown for an edu-
cation system to the higher education level, claimed that His Majesty's
loyal subjects undertaking to develop the pioneer area should not be
deprived of such opportunities because of spatial isolation (Harris,
1966, p. 10). The logic of such appeal has identical application for
Primary Resource Regions universally today, and the potential seen here
is one of creating widespread awareness of that logic. The present
study aims at becoming an instrument in creation of such awareness.

There are experiential benefits to be derived from the critical
years in establishment of the Southern Ontario system between 1890 and
1910, as viewed by Harris. The potential for such benefits in the pre-
sent context depends on awareness of changes and fundamental differences
in the 'place and time' environments. In terms of J. M. Cameron's
(1978) 'Crisis of Authority' for instance, developing education systems
today lack the nurturing support of the family and the church present
in past institutional evolution.

Benefits are available, but need to be analyzed in terms of their
nature as elements in a system and their interrelationship with other

elements.

10. Currently Expressed Principles of Higher Education

Harry S. Broudy (1975), in joining others who have dealt with edu-
cational alternatives, sees the need to provide alternatives which in-
crease students' freedom to achieve 'occupational adequacy, civic
adequacy, and personal adequacy'. He suggests that some pressures for
alternatives have, in fact, represented a flight from responsibility

for, and commitment to, formal schooling. He further suggests that

74

creative diversity, (which is usually sought) is ggt_random pluralism,
(which is often achieved).

Broudy is not dealing with higher education specifically, but the
trends and fbrces which have evoked his observations have been as damag-
ing to higher education as to the public elementary and secondary levels.
His random pluralism appears to parallel the 'random innovation' of
Alice Rivlin, and the two may be perceived as outcomes of the continuing
use of Martin Trow's 'prescriptive planning' (as opposed to 'systems
planning').

In Ontario, the creation of the CAAT*system in the expansionary
60's responded to a need for much-required attention to the vocational
side of postsecondary education. The Cameron Report, (The Northern
Dilemna, 1975), in its recomnendations, points out the need for cOopera-
tive planning and programming, in the major urban centers of the north,
between the universities/university colleges and the CAATS. Various
efforts and limited successes have paralleled this recomnendation to
date. In order that this kind of potential can achieve effective input
into system improvement, the integrity of both philosoohies must be
guaranteed protection, and this can only happen with a clear mutual
understanding of the principles of each.

Kerr issues a caution which shOuld prevail in advancing toward co-
operative structures without appropriate awareness of built-in con-

straints based upon principle and philOSOphy.

It is a monumental historical error to try to
accommodate mass and universal access enrollments
within an elite framework. (1978, p. 268)

 

* College of Applied Arts and Technology

75

11. The Practice of Politics of the Possible

 

The existing 'reciprocity agreement' by whose terms Northern Ontario
students attending Lake Superior State College are granted in-state
tutition privileges, is, in fact less than reciprocal. Michigan
colleges/universities are accessible to grade twelve graduates. On-
(tario universities are accessible to grade thirteen graduates. Ontario
CAATS are accessible to grade twelve graduates as well as to grade
thirteen graduates. The complexities apparent in connection with a
relatively simple straightforward agreement as cited should serve as
example to show that few constraints are resolvable by action at any
one level.

As interesting as the ideas of an international university and an
integrated postsecondary education system may be, potentials in such
directions will be realized only through exercise of politics of the

possible.

12. Quantitative to Qualitative Transition in Values

This ongoing phenomenon constitutes a major element of the concept-‘
ual framework within which the present study fits. As suggested earlier,
expression of qualitative interest in the resources of the Northern
Ontario region has been largely responsible for converting the tradi-
tional one-way movement of benefits (north to south) to the contempor-
arily emerging two-way flow.

As the same kind of transition is reflected increasingly in the
area of higher education (Smith, Harvey),_one is encouraged to believe
that much of the qualitative development upcoming will be dependent
upon higher education. This will become an expanding potential as

educators present

76

an education which combines the technical strengths
of the model-building era with a passionate concern
for the condition of mankind. (Smith, 1972, p. 296)

13. The Centralization/Decentralization Debate

Many of the potentials for improvement of higher education organi-
zation for Northern Ontario hinge on resolution of the centralization-
decentralization debate. The traditional view of development, dealt
with at length earlier, operated according to the concept of centrali-
zation. The contemporary view of developmentis more dependent upon
the philosophy of decentralization. Harvey suggests that selection of
the appropriate approach is largely based on the initial condition in
the non-metropolitan area. Decentralization he sees as being more appro-
priate where the initial experience was essentially an exploitive one.
This is largely the experience of Northern Ontario, and with most Pri-
mary Resource Regions universally.

The concept of mobility is at the focus of centralization—
decentralization consideration: mobility may apply to people, goods,
services, information, . . . . Rivlin and Harvey both sound a note of
caution with respect to centralization of people (through ease of mobil-
ity) in seeking well-being: mobility focussed toward the core region
can reduce the level of well-being (sense of identity, sense of commu-
nity) for the mover; it can reduce the level of well-being (quality of
life) for those already there.

The model presented in the next chapter seeks to minimize these
latter negative consequences by pursuing higher education improvement
using an interactive model. In such a model, the optimum quality higher
educational experience depends upon input into a system by both metro-

politan and Primary Resource Region. In this situation, each is called

de

Re
fa

SE

77

upon to provide system components for which it possesses the greatest

potential.

14. Technological Assets/Liabilities

 

Technology related to delivery of higher education for the Primary
Resource Region has both its assets and liabilities related to spatial
considerations as well as to professional, institutional and social
system considerations. One of the most interesting spatial consider-
ations in this connection is the contrast which occurs in applicabil-
ity of technology in the transition from metropolitan area to Primary
Resource Region.

It has long been the assumption that technologies conceived and
developed for massive consumption markets have direct applicability
into low-to-moderate consumption markets as exist in Primary Resource
Regions. This assumption has been the cause, sometimes hidden, of
failure for assistance schemes applies at the global level, and of re-
sentment within recipient areas to the 'benevolent' donor areas.

George McRobie, director of the Institute for Intermediate Technolo-
gies in London, England, refers to technologies involved in such mis-
application as 'violent' technologies (1977, p. 97).

Similar situations can arise with assumption made regarding the
potential of technologies directed at improving social service delivery
into such regions. What will usually beIdiscovered is that considerable
adaptation to the technology or its application must be worked out _a_f_i_:_e_r

its inappropriateness or 'violence' has been expressed in the context of
relatively low-level use. Aside from inappropriate scale of application,

de‘livery technology faces numerous other constraints. Meierhenry (p. 3),

78

has pointed out a number of problems which have prevented such
technologies from achieving full measure for potential possessed. At
the academic/institutional level, these include faculty resistance to
utilization, faculty governance, individual (faculty) curriculum devel-
opment, lack of integrated support services, student concern for human-
ism, and rise of student governance.

Harley (1976), refers to

cable's unique capacity for affording relatively simple
two-way interactive service (which) will also be ex-
tremely important some day. (p. 297)

The potential for cable delivery in the Primary Resource Region is
essentially limited to those nuclei focused upon the major extractive/
processing centers already linked by existing cable/microwave connections
and then only within the most densely built-up areas of such communities.
The most promising potential for this kind of region rests in the appli-
cation of 'relatively simple two-way interactive service' and this con-
cept is carried forward into the construct/model system synthesized in
the next chapter.

There is limited potential for an in-line series-linked delivery
system, which would at best hold limited interactive potential. The
most promising existing potential technologically (to combine with the

organizational) appears to be in the use of satellite communication.

Because the flexibility of satellite technology allows
easy networking, another intriguing possibility would
be the development of school 'systems' that are educa-
tionally related in some way, but not geographically
contiguous. (Harley, p. 298)

This reference to educationally related school 'systems' is the

core component of the improvement-oriented model arising from this study

79

and built upon the Interactive Consortium concept. Such a concept,
bringing together the technological and organizational components of
the problem identified, is selected as the best of the potentials which

have been examined in this connection.

The special quality of the satellite technology is not
merely that it facilitates cooperative undertakings

of unprecedented scale and scope. The satellite also
appears to have a potent psychological effect of plac-
ing people and things, jealousies and rivalries, terres-
trial imperatives and status prerogatives in a new and
larger perspective. As Charles Wedemeyer observes,
'It is one medium that need not be parochial; it sees
the whole community, not only the school; it sees the
state, not only the community; it sees the region, not
only the state'.

. distance need no longer be a barrier to the or-
ganization and application of our best educational and
social resources. In addition, the satellite would
permit service to special audiences which are too small'
to be economically viable in one community, but can be
aggregated across the nation into a 'market' of suffi-
cient size. (Ibid.)

These statements aptly sum up what has gone before: they add to
validity for the interactive consortium concept approach to the spatial
inequity/injustice problem as one which has the potential to address
INSTITUTIONAL, PROFESSIONAL, PSYCHOLOGICAL, TRADITIONAL, PHILOSOPHICAL,
and most important to this study, TERRITORIAL constraints.

CHAPTER VII
THE PROPOSED MODEL AND UNDERLYING CONSTRUCTS

The geographical problem is to design a form of
spatial organization which maximizes the prospects
of the least fortunate region. A necessary initial
condition, for example, is that we have a socially
just way Of determining the boundaries of terri-
tories and a just way of allocating resources among
them. (Harvey, 1972, p. 98)

Much of the foregoing comprises a dedicated effort by this research-
er to determine the boundaries of a territory, (Primary Resource Region),
'in a socially just way'. What remains to be done is to synthesize a
construct/model system which derives from model theory, planning theory,
educational theory, geographic theory, social theory, and theories of
spatial justice. This model will consolidate from a number of constructs
to offer a spatial/organizational construct worthy of consideration as
being part of that spatial planning regarded by Coates, Johnston and
Knox as a 'necessary component of any overall policy' aimed at 'a just
way of allocating resources among them' (territories). (p. 4)

R. J. Chorley and P. Haggett, in Models in Geography, (1976), pre—

 

sent an anatomy of models as used in geographic application. A summary
of this anatomy is presented in Appendix C of this study. In addition
to that summary, they deal with those models definable as 'internalized',
whose distinctive feature is a 'parochial view of reality'. In addi-
tion, 'paradigms' are described as models with broad significance with

value to a 'wide community of scholars'.

80

81

The model to follow herein is seen as placing emphasis upon princi-

ples and features from Appendix C as follows:

a structured idea

a relation

reasoning by means of translations in space and/or time

a simplified restructuring of reality (higher education)

a highly subjective approximation

an obscuring of incidental detail

a reasonably high probability of application

an appropriateness to a wide range of conditions

a highly selective attitude to information

an emphasis on connections from reality rather than on
aspects

an emphasis on organic nature of relationships

suggestions for its own extension and generalization

a concentration on general systems theory

interest in input/output variables rather than internal
status variables

an attempt at the paradigm's broad significance

a dependence upon paradigm rules derived from own 'edu-
cation' and subsequent exposure to the literature

The approach to, foundation for, and construction of the model

 

 

 

consciously employs selected dimensions of scientific activity as de-

fined by Philip Sarre (1972, p. 129), as follows:

observation of phenomena of interest

description and analysis verbally, graphically, and
mathematically -

attention to processes rather than simply patterns

abstraction and generalization underlying basic hypo-
thesis

advancement of ideal-type 'pattern model'

deduction utilizing 'pure' logic

assumptions about relationships between patterns and
process

predictions about the situation in particular places
at some point in the future

The follow-up presently anticipated will consist of involvement-
oriented activity directed at improving organization of higher education
for the Primary Resource Region in question. Concurrence of events and

opportunity encountered late in the preparation of this study are

82

confirming the validity of the study within the Ontario context and are

enhancing the likelihood of personal involvement in improvement efforts

in that context.

Such fellow-up involvement will permit application of Sarre's last
step in scientific activity: continuing observation "designed to test
the prediction made in the previous (next to last - deduction) stage",

(p. 180) confirmation of prediction support theory, and recognition of

failures as a stimulus to refinement.

A. STAGE 1: VERTICAL/HORIZONTAL ACCESS-EQUITY CONSTRUCT (Figure 5)
K. Patricia Cross suggests that

The new clientele for higher education in the 19705
consists of everyone who wasn't there in the 19405,
19505 and 19605. There are four distinctive but over-
lapping groups: (1) low academic achievers who are
gaining entrance through open admissions; (2) adults
and part-time learners who are gaining access through
non-traditional alternatives; (3) ethnic minorities;
and (4) women who are gaining admission throu h pub-
lic conscience and affirmative action. (p. 32%

Cross is dealing with access along one dimension only. This study
has referenced that dimension as the SOCIAL dimension of traditional de-
privation. Within the study, the important SPATIAL dimension of depri-
vation from access to opportunity has been identified and added. The
spatial component of solution to this contemporary problem has been
fOcused upon organization for improved programme and delivery. Cross

suggests that

The problem for the future is not so much in the gen-
eration of new technology and new products as in better
distribution systems, broader-based knowledge and
greater concern for individual development. The way

to raise the standard of living for everyone is no
longer to train leaders but rather to educate the
masses to their full humanity . . . .

83

. . A concept of education for all the people re-
quires new methods of delivery to take education into
prisons, homes and industrial plants. (p. 31)

It is appropriate at this point to introduce the graphic represen-
tation of the VERTICAL/HORIZONTAL ACCESS EQUITY CONSTRUCT (Figure 5).
Cross' latter concept calls for delivery into constituencies which may
all be fOund in the metropolitan region. The present study calls for
delivery into constituencies apart from the metropolitan region, into
the Primary Resource Region.

IThe vertical/horizontal access equity construct is presented as
Stage One of the model foundation, since it provides a matrix which com-
bines the social and spatial dimensions of access concern.

Distance along the Y-axis, (social distance), is non-scalar. It
may expand or diminish with changing values and attitudes, policies, or
legislation vis a vis racial and ethnic groups, color, creed, occupa-
tional and family background, income or sex. Distance (or remoteness
from access) may be determined by such variables taken individually or
in combination.

Similarly, distance along the X-axis finds its simplest expression
in linear measure, but is inevitably made complex by such distance ex-
panding variables as topography; climate; resource types and combina-
tions; governmental philosophy, policy and intervention; quantity]
quality perspectives and so on. Thus, the X-axis must also remain non-
scalar.

With the introduction of the spatial dimension along the horizontal
axis in this construct, the area enclosed allows for interesting 'over-
lap plotting' fer the 'overlapping (social) groups' cited by Cross and

the 'spatially deprived' group identified by the present study. This

84

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85

'overlap plotting' has the potential for examining non-metropolitan
communities as their place variation on the matrix is indicative of
characteristics derived from combinations of social variables and spatial
variables.

The construct also provides a framework within which the concepts
of centralization and decentralization can find logical directional ex-
pression in terms of relating to social/spatial characteristics of com-

munity make—up.

B. STAGE II: HISTORICAL ONTARIO DEVELOPMENT CONSTRUCT (Figure 6)

This construct is best viewed in three phases, keyed to changing
levels of interactivity between the separated northern and southern parts
of the province. The interactivity embodies multi-dimensional change

including

government posture regarding development
resource-related attitudes

economic/social biases

quantitative/qualitative development-orientation
the role of education (especially higher education)

The first phase represents the situation to the mid-19005, and
focuses upon the traditional view of development. In this view, orien-
tation is predominantly north-south. Natural resources of the north
are owned by the provincial government, whose role is the encouraging
and the regulation of quality extraction of those resources to southern
markets. Education is an instrument of promotion to interest outside
expertise and capital in such extractive efforts. Benefits derived fnmi
resource processing (including human resource processing--higher educa-
tion) accrue primarily in the south. Return benefits, (primarily infra-

structure) are adequate to maximize extraction.

86

Figures
HISTORICAL ONTARIO DEVELOPMENT CONSTRUCT

PHASE I. TO MID IOOO's TRADITIONAL VIEW

NORTHERN ONTARIO: PRIMARY RESOURCE REGION
GOVERNMENT OWNERSHIP
ENCOURAGEMENT AND REGULATION
OF RESOURCES AND EXTRACTION
ECONOMIC
(QUANTITY)
EMPHASIS

 
  

     
   

II
II
II
II
II
II:
II
II
{I
II
AL
\\

A
I\
I

ED IICMNIMAL BDEENEF‘I‘TSE: TO
U ATION A 00 T
REggwggfingmagNJ'qu MAXIMIZE EXTRACTION
HUMAN-*HIGHER EDUC.)

 

 

SOUTHERN ONTARIO: AGRARIAN—r URBAN/INDUSTRIAL REGION

 

PHASE 2. leads TO 9 CONEMPORARY VIEW
'——E T_l

PRIMARY RESOURCE REGION

EXTRACTION AND MANAGEMENT

      
   
   
 

QUANTITY

m _____
QUALITY
- EMPHASIS —————

 

III
I

J I

 

COMMITMENT TO ECONOMIC AND
SOCIAL BENEFIT SHARING: HIGHER ED.
INCLUDED AND INSTRUMENTAL

METROPOLITAN REGION

 

 

 

PHASE 3. PROJECTED VIEW

 

UNIFIED, INTERACTIVE
HIGHER EDUCATION SYSTEM

 

 

(Consortium)
' I REPRESENTATIVE AND SUPPORTIVE | |
of
INTEGRATION
SPATIALLY AND FUNCTIONALLY AS WELL AS
POLITICALLY

 

 

 

Arrows: F low of Benefits
Dotted Line : Spatial and Philosophical Separation

87

Phase two, beginning in the 19605, represents the contemporary
view. Elements of change in this phase find public values toward re-
sources emphasizing management as well as extraction, quality as well as
quantity, and need to derive social benefits in balance with economic
benefits and in the north as well as in the south. Government indicates
commitment to enhancing quality of life in the Primary Resource Region.
Part of that commitment is expressed as a need to provide opportunity
for realization of individual and community potentials. And part of this
need is to create access to educational opportunity with education de-
fined as the key to economic and social development.

In phase three, the projected view, higher education is taken as
possessing the opportunity to provide example of a sygtgm which over-
comes the old physical/philosophical separation between the Primary Re-
source Region of the north and the metropolitan region of the south.
Such a role requires interactive cooperative efforts to create a higher
education system which is representative of and supportive of provincial

integration spatially and functionally as well as politically.

C. STAGE III: TWO DIMENSIONAL INSTITUTION-ORIENTATION CONSTRUCT
(Figure 7)

This construct, modeled on the conceptual framework offered by
Harcleroad, et al. (1969) has definite spatial implications for the pre-
sent study context.

The construct appears at first to provide a singularly functional
matrix. The space enclosed allows for placement of differentiated insti-
tutions as judged on the basis of their instructional-level emphasis

(on the vertical plane), and on the basis of their theoretical/applied

88

Figure 7

UNIVERSITY FUNCTION 1

UNIVERSITY GRADUATE/ PROFESSIONAL/ RESEARCH EMPHASIS
\DOCTORAL/ POST DOCTORAL/PROFESSIONAL LEVEL;

 

 

 

4 a
BACHELOR'S LEVEL I 3":
I

 

THEORETICAL ORIENTATION
APPLIED ORIENTATION

LIBERAL ARTS/ UNDERGRADUATE
INSTRUCTION EMPHASIS
COLLEGIATE FUNCTION

TWO DIMENSIONAL INSTITUTION-ORIENTATION CONSTRUCT
(after Harce/erod et al. /969l p. IOZ

89

emphasis (on the horizontal plane). Most existing institutions might
be placed with relative ease somewhere within this descriptive framework.

Such a framework has value in application toward construction of a
model for improved spatial justice/equity. As indicated by Urwick
(1952), theory and practice each has its relative merits. Neither should
be sacrificed for the sake of emphasis upon the other. As institutions
develop to serve the needs of specific territorial units (such as the
Primary Resource Region), the function of such institutions must be a
compromise between applied orientation (community-serving and problem-
solving activities), and theoretical orientation (providing interpretive,
analytic and synthesizing skills and concepts, and competencies helpful
in pursuing non-vocational self-actualization).

As suggested by J. M. Cameron (1975), the multiversity has frequent-
ly abandoned the interests and well-being of the undergraduate student.
The base-line collegiate function in this framework has definite spatial
significance in that undergraduate faculty-student contact opportunities
are best maximized in the smaller liberal arts college frequently found,
at present, apart from the metropolitan region. As one proceeds verti-
cally upward within the construct framework, requirements for expertise/
renown/research competencies are increasingly available. In terms of
the present study, this vertical upward space from the base-line may be
taken as somewhat analogous to 'Primary Resource Region to metropolitan'

transition-space dealt with in discussion and in the model.

0. STAGE IV: THE PROACTIVE/INTERACTIVE CHANGE CONSTRUCT (Figure 8)
(adapted from the Proactive/Interactive Change Model of Zaltman,
et al., 1977, p. 141, Figure 5-3)

This stage represents a step from the generally or globally

r'bzmm-Ixm

9O

PROACTIVE/ INTERACTIVE CHANGE CONSTRUCT

(Adapted from Proactive/Interactive Change Model: Zaltman et al.

 

 

 

 

 

 

 

 

p.l4li-'ig.5-3l
SOUTHERN ONTARIO I UNIVERSITIES
N ' l 7
g MISSION STATEMENT
T DIAGNOSIS (AwARENESSI
H OF PERFORMANCE GAPS -<—
I <—>
S PROBLEM STATEMENT <—-> I
N PROBLEM SOLVING I
O OBJECTIVES <——-> :
N DETERMINE RESOURCES I II
1- AND CONSTRAINTS <—-> I
. <-—9
A GENERAL ALTERNATE I
II? SOLUTIONS <—-> I U II
0 TEN MOST PLAUSIBLE l N
SOLUTIONS e—s I I
ADOPTION (REJECTIONI I E I
H DEcISION <——-> : R M
IMPLEMENTATION AND I S P
‘ a CONTROL <—-> I I A
EVALUATION -——-- —->-—' T $-
E O
S R

 

 

 

 

s—P I Lin/ring with environment
----- Potential direct feedback and recycling

from any one stage to any other

Figure 8

91

applicable vertical/horizontal access equity construct of stage one to
a more specific spatial/functional matrix within which the study area
may be placed._

In this matrix, the innermost space is occupied by the evolving
higher education system of Northern Ontario. The surrounding 'environ-
ment' space is occupied by the provincial 'system' of higher eduCation
as represented by the universities of metropolitan Southern Ontario. A
further perimeter 'environment' space is occupied by provincial and
federal ministries, agencies and personnel representing functional (fund-
ing, advisory, support) environment for the provincial 'system'. These
‘ occupants of this environment are the 'external impactors'.

Placement within this matrix requires the assumption that the
evolvingNorthern Ontario higher education system can generate internal
forces and processes for change and can identify directions for self;
renewal and self-enhancement along which these fOrces and processes may
be applied.

The assumption must also be taken that there are critical people
and groups operating in all three levels of environment who can be con-
vinced that support for and commitment to the concept of internally
generated planning for change is legitimate and desirable.

Like the dual environment model of Zaltman, et al., this construct
assumes interfaces between levels of environment which are totally per-
meable to linkages between levels. And the same assumption of series/
feedback potential for stage relationships within and between levels is

also taken.

By being placed within this matrix, the problem of spatial/philo-

sophical separation identified earlier in the study, and the related

92

problem of spatial injustice, can be approached from a spatial-solution
perspective. The approach is also consistent with: the need for
systems as opposed to prescriptive planning; (Trow); systematic experi-
mentation as opposed to random innovation; (Rivlin); recognition of
'territorial needs'; (Harcleroad); the belief that chance should be dis-
tributed equally; (Martin); the assumption that general welfare is in-
creased by reducing territorial differentiation; (Smith); and the goal

of a just distribution justly arrived at; (Harvey).

E. STAGE V: INTERACTIVE CONSORTIUM NETWORK CONSTRUCT (Figure 9)

. education is fundamental to the individual's
enjoyment of certain recreational pursuits and to the
fulfillment of democratic opportunities as well as to
occupational status and social mobility. (Coates,
Johnston and Knox, 1977, p. 13)

In the context of spatial/philosophical separation in Ontario, and
the need to rectify distributive injustice, the interactive consortium
construct is critical in assuring that education realizes its fundamen-
tal responsibility of enabling 'fulfillment of democratic opportunities'.

If rationalization of the 'system' to rectify injustice simply con-
sists of perpetuating the flow of what is 'best' out of the metropolitan
region to the Primary Resource Region, little is done to reverse the
traditional regional cynicism regarding access to democratic opportunity,
let alone fulfillment. To the writer, the cynical lack of desire to
attempt becoming involved in the decision-making process is one of the
most important, yet most under-rated, signals of poverty in the Primary
Resource Region. If residents of such a region are to be convinced that
they deserve input into the democratic system, they must first be con-

vinced that that system values input which they may provide for

93

INTERACTIVE CONSORTIUM NETWORK CONSTRUCT

 

,' A 2.

SATELLITE .

//

RESoU 'PIPELINE'
ARI ”CE
991‘“ “gTROPOLITAN —\ REGON
REGION

 

 

UNIVERSITIES

 

Universities of Northern Sub - Regional Centers

Ontario 0 Small aggregations to isolated
each a receiver. gag potential ' single unit operations
transmitter for Provincial System

0 Major Urban Centers,

Figure 9

94

improvement in individual parts of that systemé-the social service
system, and, more specifically, the higher education system.

The interactive consortium network construct is based upon the as-
sumption that Northern Ontario institutions will be viewed as system-
parters with Southern Ontario institutions, rather than system
competitors. In other words, input-potentials for a better functioning
system may originate in the Primary Resource Region for delivery south,
as well as in the metropolitan region for delivery north. The construct
as a unit has the organizational structure of a consortium, with inter-
active capacity maximized by the optimal technology available at present,
in the form of satellite communication. In addition to actual informa-
tion exchange as above, the consortium can become a medium through which
awareness of opportunity for cooperative endeavors, mutual esteem for
sound expertise based on differing kinds of knowledge, logical areas of
programme-sharing advantage, and general common-purpose consciousness

can be effected.

F. STAGE VI: THE STUDY AREA ACCESS—EQUITY IMPROVEMENT MODEL (Figure 10)

1. Level One Environment: Northern Ontario Higher Education 'System'

Placed in the matrix referred to in Stage One, this environment is
remote spatially and socially from the metropolitan region of Southern
Ontario. This places increased importance upon the process-function
being initiated within this environment, as in Stage Two.

The mission statement must incorporate synthesis of higher educa-
tion principle-related views and actions such as: response to changing
meaning of quality education with open admissions, (value-added meaning);

responsibility for educating the masses "to their full humanity";

95

STUDY AREA ACCESS IMPROVEMENT
MODEL

 
  

LEVEL THREE

ENVIRONMENT
EXTERNAL IMPACTORS

Provincial and Federal Ministries, Agencies, Advisory Groups,
Personnel - Public and Private Business, Industry, Research,
Enterprise- Foundations, Social Service Agencies - General
Yuma

IVI

[INTERACTIVE CONSORTIUM]

    
  
  
     
     
     
    
     
  
 

  
 
 
  

 

PROVINCIAL UNIVERSITIES PLUS

ExTERNAL IMPACTORS

CONSOLIDATED PLANNING FOR

OPTIMUM PROGRAMME
AND DELIVERY

 
 
   
 
 

    
   
     
 

 
  
 

LEVEL TWO
ENVIRONMENT

LEVEL ONE
ENVIRONMENT

 

UNIVERSITIES OF

   
 
  

UNIVERSITIES OF

 

      
  

 

      
 
 

 

NORTHERN SOUTHERN
°_____NTAR'° CAUT, OCUFA, OPS, COU, °___NTAR'°

   
    

Aucc,CAUBo
A B

\\

CAUT Canadian Association of University Teachers

OCUFA Ontario Confederation of University Faculty Associations
OF S Ontario Federation of Students

COU Council of Ontario Universities

AUCC Association of Universities and Colleges in Canada
CAUBO Canadian Association of University Business Officers

Figure IO

96

"gearing up to serve a new clientele“, (everyone who wasn't in higher
education in the 19405, 19505 and 19605 for Cross' 325131 and this
writer's spatial reasons ); providing "learning that will foster person-
al development and community responsibility"; embracing of a higher ed-
ucation concept in which "education for all the people requires new
methods of delivery" to extend education socially and spatially for
greater equity; and the need to "demand of each student the higher stan-
dards of performance in the utilization of his or her talents". (Cross,

1973’ pp. 31‘34)

bringing of facilities of more remote or poorer regions up
to a qualitative level 'not scandalously below' that
found in more concentrated and wealthier areas. (W. G.
Fleming)

achieving delivery improvements through application
of such concepts as 'decentralization and community
control'. (Alice Rivlin)

improving general welfare through increasing territori-
al equity. (D. M. Smith)

striving for 'just distribution justly arrived at'
(David Harvey)

reducing 'territorial discrimination' (P. L. Knox)

providing 'opportunities and encouragement for each
individual to achieve his highest potential of intel-
lectual, personal and social development'; addressing,
through a comprehensive approach to education in
northern Ontario 'the continuing process of individual
and community development and the unique needs of
groups, communities and the region'. (Design for Devel-
opment: Analysis)

The fallowing is prepared as the kind of mission statement which

grows out of such a synthesis.

It is recognized that quality higher education must
come to be defined as the right of a clientele signi-
ficantly expanded numerically, qualitatively, socially
and spatially. To accommodate that right, higher

97

education, (functioning as a system for the province),
must undertake a self-analysis aimed at
- gearing standards to individual, community, and
regional improvement linked with potentials
- finding delivery methods which will foster
social and spatial equity and justice
- becoming a self-regulating, self-renewing sys-
tem of mutually esteemed and mutually suppor-
tive institutions committed to serving equitably
the province's total population
- maintaining those elements of traditional prin-
ciple and function necessary for safe-guarding
the integrity of the university as the recog-
nized seat of fbrmal higher education
- fostering preparation for a 'creative, humane,
and sensitive' life

With the mission statement established upon a base of such princi-
ples of purpose, the balance of process steps needs to be addressed by
a small representative group of 'critical', 'significant', 'involved',
and, above all, 'committed' people. At best, this group will have the
release time to meet frequEntly for sustained time periods within a
specified time-frame.

For optimal regional representation, the concept of regional affil-
iation should be discarded from the Northern Ontario context. In its
place should be established a gygtngOf universitjg§_and university col-
leges, ('Universitig§_of Northern Ontario' as a subset of the 'Universi-

ties of Ontario'), each with mandate

1. to identify programme and outreach components best
suited to its own part of the region

2. to participate cooperatively within the above
group and to orchestrate its operation with others
for a regional operation consistent with the mis-
sion statement

3. to seek and respond to opportunities for coopera-
tion with any and as many southern Ontario univer-
sities as may be justified in specific areas
involving joint efforts and joint expertise of
mutual benefit institutionally and regionally

98

'Evaluation' and 'self-renewal' mechanisms need to become an import-
and part of the regional group's terms-of-reference in order that the
regional instituions can, in fact, function as a system, as distinct

from a number of 'educational empires'.

2. Level Two Environment: Southern Ontario University Community

This envirOnment is included as a second component-level of the
present model primarily because of the links it possesses,and may come
to possess, with the Northern Ontario 'system'.

Mention has been made of the residual ties from parts of the north
to established institutions in the south, largely developed prior to
appearance of northern facilities. These southern institutions have
had the time and the experience to develop sound reputations in specific
academic areas, and a significant body of faculty widely recognized in
these areas. Much of the foundation area of undergraduate instruction
is, unfortunately, made the responsibility of graduate students. (From
another perspective, admittedly, this is a fortunate Situation in terms
of graduate student assistance and, perhaps, experience. The bias for
interpretation here is upon the undergraduate student and his best
interests.)

Inasmuch as the Southern Ontario university community occupies the
second of the three environment levels in the model, certain assumptions
may be taken as being reasonable regarding its responsibilities and
potentials from such a perspective.

First, that 'system' should be viewed as the 'nurturing system'
for the emergent units in the 'Universitjg§_of Northern Ontario'. Hav-

ing acquired the reputation and expertise mentioned above, its

99

universities also established the most direct pipelines to sources of
funding, research requests, encouragement, and influence upon decision-
making. Their residual ties to northern areas, along with others being
developed, provide the basis far a network along which they can nurture
specific undergraduate programmes and collect specific dividends from
such efforts. Resources and existing facilities in the north provide a
variety of potentials for associated efforts involving faculty and
facilities adjusted to the realities of the northern region, working in
partnership with 'status' institutions and facilities looked upon for
leadership in the academic realm.

Secondly, the metropolitan region's universities possess a location-
al inflexibility and have come to possess a size inflexibility in terms
of being able to respond adequately to the concept of spatial injustice.
They possess faculty who reside in the metropolitan region by personal
choice related to such factors as prestige of association with major
institutions and convenience of access to varied and 'high-order' ameni-
ties. Such people are unlikely to possess strong desire for, or commit-
ment to, direct personal/spatial-involvement in 'spatial equity' efforts.
On the other hand, faculty dedicated to the emerging institutions of the
north have so chosen on the basis of a variety of factors, including
challenge of new ventures, quality of leisure-oriented amenities, pace
of life, and intimate contact-opportunity with classes and community.

As the values and attitudes of the qualitative revolution continue
to replace the values and attitudes of the quantitative revolution, it
is entirely possible that increasing numbers of entrants to higher edu-
cation will opt far the quality environmental advantages available with

study in the north. Their introduction to the problems faced by a

100

developing region (as opposed to those of a highly developed region),
can expose them to an appreciation of the unique circumstances and
opportunitiés existing in the Primary Resource Region.

Coupling of the student and faculty factors considered here leads
to a rationale in which the established universities of the metropolitan
region encourage the development of contractual or consortium arrange-
ments with institutions of the Primary Resource Region. In addition, it
is conceivable that, with a functioning interactive consortium as con-
sidered earlier, students might be encouraged by 'prestige' institutions
to divide their academic experience, so as to be provided with a first-
hand perspective of the two very different parts of the higher education
'system', Egg of their province. In fact, success in this direction
might be a critical step in achievement of a true HIGHER EDUCATION SYSTEM
FOR THE PROVINCE OF ONTARIO.

3.- Level Three Environment: Significant External Impactors

The occupants of this environment within the model are, in tradi-
tional practice, mainly responsible for changes in the education process.
In other words, the process of adjustment has largely been initiated by
these impactors. The present model includes them, but views them as
acting more appropriately in a support capacity, responsive to and in-
volved in changes necessary to effect spatial justice in the province's
provision of higher education opportunity. Such changes, in the model,
will be generated increasingly and internally on the basis of 'internal
awareness of the performance gaps'.

Present occupants of this environment include Provincial Ministries

of--Colleges and Universities; Education; Northern Affairs; Treasury,

101

Economics and Intergovernmental Affairs (along with influential person-
nel within each): professional and institutional organizations, (OCUFA,
CAUT, CAUBO, COU, OFS, (Figure 10): private and public business and
industry: research enterprises and foundations: social service and
welfare agencies: and probably most significant of all, the general
public. In most jurisdictions, as is the case with Ontario, traditional
adjustments in higher education have found institutions responding to
needs and trends identified, and alterations recommended, from within
this 'peripheral' environment.

The present model is based upon the belief that awareness of the
most significant 'performance gaps' in realizing access equity can be
acquired most accurately from within the level one environment—~within
Northern Ontario. The process, then, of proceeding through the internal
steps of the proactive/interactive change model, builds from such aware-
ness, with support provided to the process from the other levels where
and as required.

Certain examples of the fit of significant impactors into optimum
model function may be derived from the selected potentials for improved
organization in Chapter Five. In most instances, the role of these im-
pactors becomes one of providing a legislative/funding/encouragement/
systematic/ . . . climate within which 'politics of the possible' can be
directed to eliminating recognized constraints/liabilities. In some
instances, it may be necessary to accept the addition of new impactors,
(e.g., from the federal level--Rivlin), where they have a supportive and
non-threatening potential.

The degree to which spatial constraints/liabilities may be converted

to spatial assets/opportunities is dependent first upon the clear‘

102

identification and understanding of what those constraints/liabilities
are, and what potential their conversion possesses for improved organi-
zation. The tendency has been for the level three environment impactors
to suggest to institutions that they undertake efforts to effect conver-
sion based upon their (external) perception of the situation. The fre-
quently referred to concept of affiliation is an obvious case in point.
These impactors possess the influence to encourage and create a climate
in which adaptation of the concept to the northern environment has great-
er likelihood of creating assets from liabilities in the spatial sense.

In the case of logic of program exclusivity/sharing, the example
of stability related to the farestry degree programme at the University
of Toronto and Lakehead University has been discussed elsewhere in this
study. Two current sets of discussions bear upon operation of the model
and represent interaction at present involving, in case one, interaction
between levels one and two environment, and in case two, all three
levels.

Case one involves discussions between the University of Western
Ontario (a possessor of strong residual ties with the community of Sault
Ste. Marie), and Algoma University College in Sault Ste. Marie. A strong
desire has long existed in the northern community for graduate courses
in education, especially among teachers with bachelor's degrees. Grad-
uate courses in education have been readily available in close proximity
at Lake Superior State College in Sault Ste. Marie, Michigan, provided
by Northern Michigan University in Marquette and Michigan State Univer-
sity in East Lansing. On repeated occasions over the past several years,
the writer has been approached by a number of acquaintances expressing

a desire to have graduate education courses from an Ontario university

103

made available through Algoma University College.

The discussions between Algoma and Western have intensified.
Western recognizes that a number of Algoma's faculty have advanced quali-
fications in education, and experience in teaching at the elementary and/
or secondary levels. It appears that a suitable arrangement can be
arrived at to accommodate those desirous of entering a systematic Cana-
dian content program. (Over one hundred local teachers have indicated
preparedness to take advantage of such an arrangement.) This is truly a
step toward the concept of interactive consortium.

Case two involves even more recent discussions in Sault Ste. Marie
between representatives of the Rural Development Outreach Project at the
University of Guelph and representatives from Algoma University College.
The researcher had the privilege of being invited to participate in the
initial discussion on March 26, 1979.

In this case, the representatives from Guelph have recognized the
impact of physical and philosophical separation as dealt with earlier in
this study. They carry the view that extension of their program into
Northern Ontario requires the mounting of 'distant' interdisciplinary
efforts and 'it is anticipated that a more fully developed project will
be mounted in a location in Northern Ontario by 1980'. (University of
Guelph, 1977-78) Ironically to the writer, the 'level three impactor'
most prominent in this case is the W. K. Kellogg Foundation of Battle
Creek, Michigan, funding sponsor for this 'helping people help them-
selves' project.

As a final example relating impactors to model, many people have
been intrigued at various times over recent decades with the opportunity

which exists for a unique 'international university' concept at Sault

104

Ste. Marie, Ontario/Michigan. The first step in this direction is natur-
ally implementation of international cooperation. Legislators, (as
impactors in this context), ‘paved the way‘ for cooperation with a reci-
procity agreement. From an internal perspective, this overlooks the
basic system differences which render the agreement one-sided in terms
of benefits.

This example is the most complex of all. It involves all three
‘environment levels' and impaCtors all the way from the local to the
national and international levels. It, more than any other example,
makes obvious the need for systematic planning and efforts of all impac-
tors to create an environment of support and encouragement, if it is,

in fact, a desirable pursuit in a spatial sense.

G. CONCLUSION: MODEL STRUCTURE AND FUNCTION

The structure of the model is as portrayed in Figure 5. It consists
of three circles interlocking in such a way that ‘levels one and two
environment‘ can interact across each other‘s boundaries or through the
area common to all three--the Interactive Consortium area. Level three
environment, that for external impactors, interacts directly with the
Interactive Consortium, and indirectly through it with the other two
levels. The ‘shield‘ farm area or remainder contains the official organ-
izations representing the constituencies of the university community.

Just as in Buss‘ suggestion that ‘universities, like individuals,
are dynamic living systems that undergo change in the context of changing
social conditions‘, it should be equally true of their overall organiza-
tion that it be a dynamic living system-~flexible, responsive, and self-

regulating.

105

The proposed Interactive Consortium Council can enhance such organ-
ization. Its adherence to the latter descriptors can stem from structure
and process safeguards consistent with its unique origin. These might

optimally include:

‘floating' calls-to-order in response to ‘time and place
needs‘ associated with the earlier mentioned performance
gaps

regular calls-to-order across the ‘Universities of
Northern Ontario‘ framework

flexible overall membership responsive to needs as
above

core leadership representative of all three levels
(with level three environment representative being a
new deputy minister resident in northern Ontario and
responsible for northern higher education affairs)

a process mechanism marked by continous evaluation and
totally fluid reversibility along an IDEA-ALTERNATIVE-
DECISION-IMPLEMENTATION continuum (roughly analogous

to the Unified Field Theory of Political Geography
postulated by Stephen B. Jones)

The Interactive Consortium Council may be taken as somewhat analog-
ous to the ‘statewide planning, coordinating, and governing boards for
public higher education‘ in the United States. (These numbered 23 in
1960 and 47 in 1970; today, 1979, 'all states and eligible territories
except Wyoming have at least statewide planning boards; and in fOrty-
eight states, plus Puerto Rico, coordinating or governing boards have
some responsibilities for planning for the full range of postsecondary
education‘. Millard, p. 124)

At the institutional (sub-consortium) level, cooperation may be
initiated along the lines called for by Governor Milliken of the State

of Michigan:

106

I also am calling for all private and public two-year
and four-year colleges and universities to participate
in regional conferences to develop program coordination
among the various institutions. (Milliken, 1979)

Further, in summary, it would be well to outline the function on
the basis of input by constituencies as identified in the diagram and in
foregoing text description. Again, it should be noted that these inputs

are representative and not eXhaustive.

A. The ‘Universities of Northern Ontario‘ should provide:

information on community needs, and on regional perfor-
mance gaps regarding improvement efforts (feedback
function)

awareness of unique assets for programme offerings,
including environmental assets (resources, facilities,
quality); student-faculty contact opportunity for
undergrads; size and programme flexibility; oppor-
tunities for new research; faculty personnel tuned

to problems and needs of Primary Resource Region
reality

continuous evaluation of programme

limited graduate and professional programme compon-
ents based on demonstrated suitability and competence

qualified community personnel for cooperative program-
ming with southern ‘majors‘

regional programme focus on enhancing northern know-
ledge with ‘interpreting and synthesizing' skills

These 'Universities of Northern Ontario'will develop from the
present

uniquely sensitive institutions of the North. Dis-
tributed throughout 80% of the land area of the
Province and serving widely separated small commu-
nities in fragile economic circumstances these in-
stitutions must carry a burden of expectations
perhaps quite different from those experienced
elsewhere. .

These expectations flow from three sources:
the narrow economic system of single-resource com-
munities; the chronic underdevelopment of community
services and the unpredictability of student demand
from a shifting population. (OCUFA Brief, p. 11)

107

B. The Universities of Southern Ontario should provide:

nurturing attitude and academic atmosphere for im-
provement efforts

readiness to share programmes (especially at the under-
graduate level) with interested and competent insti-
tutions in the north

‘subcontracting‘ of programme segments and research
project units for which northern region or part thereof
best suited

senior personnel and expertise for programme and
delivery planning and coordinating

assurance of intake to professional and graduate
levels for undergraduate candidates from the north

C. The Interactive Consortium should provide:

intermediary function between external impactors and
the provincial university community

advisory function, promotional function, coordinating
function

information on system-wide needs (legislative adjust-
ments, funding evaluation and formulae, research
support,

0. External Impactors should provide:

legislative and financial support
information an externally perceived needs

non-academic support personnel for the planning and
coordinating functions

a provincial ‘climate‘ of encouragement, support,
long-term commitment, and concern with equity

E. The University Community-Based Organization should provide:

observation and advisory functions regarding implica-
tions of adjustments in academic programme, delivery,
faculty, student body, support staff, administration,
budget, and any other resource adjustments involved
in equity improvement efforts

logistical support for the 'change-planning and coor-
dinating function‘, (data; information on legal impli-
cations, collective bargaining implications where
applicable, professional and scholarly implications,

108

Inputs from the various environment levels into the Interactive
Consortium may combine to become functions at that level.

A note of caution should be inserted at this point. There may be
a tendency to read into the model more than the intent to which this
study is directed--an improvement in spatial equity/justice. It should
be understood clearly that the model was devised solely to assist this
intent.

Finally, it should be stated and/or reiterated that the proposed
model, in order to achieve optimum function, must be applied in company
with as-near—as-possible-to-universal-acceptance of certain assumptions.
These include:

that a significant part of the improvement challenge
can be addressed as a spatial challenge with spatial

solutions

that a higher degree of 'spatial justice‘ in terms of
higher education access to opportunity can be achieved

that a major share of the catalytic responsibility in
developing alternatives for improved organization
should be given the Primary Resource Region, with its
proximity to regional performance gaps

that established reputable universities are prepared
to commit themselves solidly to achieving this spatial/
social justice through seeking the supporting coopera-
tive effort

These assumptions are consistent with the SEPARATION and EXTERNAL
AWARENESS problems dealt with throughout this study. They are also con-

sistent with a recent brief to the Ontario Council on University Affairs.

It is clear to OCUFA that real recognition of the prob-
lems inherent in operating the Northern institutions has
yet to be achieved outside the North. While Northern
grants have brought some relief, a much more detailed
and saphisticated understanding is required at all
levels. Protecting care programs, allowing realistic-
ally for the environmental and geographic diversity of

109

the region, giving incentives for experimental
efforts, ensuring high quality of service, and guaran-
teeing equality of access and choice for Northern
students--these should be the goals of the advisory
councils and the government in respect to the North.
(OCUFA Brief, p. 12)

This study, based upon internal perspective applied without benefit
of significant external incentive for experimental effort other than what
may fallow, confirms, clarifies, and elaborates upon the goals cited in

this brief.

CHAPTER VIII
SUMMARY STATEMENT AND IMPLICATIONS FOR FURTHER RESEARCH

Motivation for this study developed out of a lifetime of residence
and several years of professional experience within the Primary Resource
Region of Northern Ontario, Canada. The researcher was thus convenient
to observation of a pattern of traditional extraction, with physical
resources removed from the region with little processing to add value
within, and therefore, benefit for, the region. In the case of human
resources, the pattern of removal has been essentially the same tradi-
tionally, with people compelled to migrate south to the metropolitan
region for any diversity of opportunity, including higher education
opportunity.

The pattern remains much the same, and only recently has government
indicated commitment to extension of equitable opportunity into all
.parts of the province.

The future will be marked by increasing need for greater concern
toward equitable access to opportunity as well as toward equitable dev-
elopment for Primary Resource Regions. This will be in the best inter-
ests of the province as a whole.

There have been examples of improvement in access and development
through a decentralization in such diverse countries as Brazil, Britain,
Norway, and Thailand.

The compatability of the researcher with the theme addressed and

the study carried out is desCribed by Minshull:

110

111

Ideally, the theme comes out of the region, and is in
fact the expression of its most important character-
istic for the geographer . . . .

The geographer i5 selfish in indulging his own inter-
est in a region, but in a well-written description where
the geographer is not ashamed to reveal his interests,
the reader may be able to share these interests and go
along with the development of his ideas, although this
is much more common when reading history . . . .

The regional geographer assembles all the facts which
may be necessary, then he thinks about them, and think-
ing is not a group activity. The facts are digested,
analyzed, and re-synthesized into a different form,
which is the geographer‘s personal view of reality tem-
pered by his training. Therefore, if the task j§_too
big for one man, then in the opinion of the writer the
answer is not to confine each man to a single topic,
and make him a general geographer, a specialist unable
to communicate with other specialists, but to confine
each man to a region small enough for him to compre-
hend, to make him a regional geographer, a complete
man among men. (Minshull, 1967, pp. 141, 149, 151)

A. RESEARCH FOR THIS STUDY IN RETROSPECT

The theme for the present study came ‘out of the region‘ and ‘is in
fact the expression of its most important characteristic for the (present
researcher, a) geographer‘. That theme is the deprivation of Ontario‘s
Primary Resource Region population from equity of opportunity, (spatial
justice), growing out of the reality of spatial/philosphical separation
between frontier Northern Ontario and metropolitan Southern Ontario.
Knowledge of this situation of spatial injustice is possessed by the
writer by virtue of: (1) its having impacted upon his acquisition of
undergraduate and graduate academic credentials; (2) its having limited
the potentials of emergent higher education institutions in the north,
especially the one with which the researcher has been associated for ten
years; and (3) its having been largely responsible for instilling within

a regional people a ‘poverty of spirit‘ personified by cynicism toward

112

recent efforts by a provincial government to invite input into the
decision-making process from its Primary Resource Region.

Capacity of the researcher to interpret and synthesize that know-
ledge comes from ‘tertiary treatment' of himself as a human resource
in universities of Southern Ontario and the State of Michigan.

While ‘selfish in indulging his own interest in a (primary resource)
region‘. the researcher ‘is not ashamed to reveal his interests‘, in
hopes that 'the reader may be able to share these interestsand go along
with the development of these ideas‘. ShoUld this be the case, the
reader will be aware, by this point, of the purpose of the study: to
fill a gap in current research--one created by-lack of emphasis upon the
spatial dimension of a social problem.

Facts and empirical evidence from the researcher‘s experience, ob-
servation, education, and exposure to the literatUre, have been collec-
tively ‘digested, analyzed, and re-synthesized into a different farm,

. . . (my) personal View of reality tempered by training‘. The researcher
presumes to characterize himself as one who, despite pressures within

his discipline in the paSt two decades to see specialization and quanti-
fication as ends, has sought to apply enough of each to fit ‘the answer

. to confine each man to a region small enough for him to comprehend,
to make him a regional geographer'. This research is presented as a
product of this experience--a conCeptual model framework derived from a

perspective internal to Ontario‘s Primary Resource Region.

8. FURTHER RESEARCH

It is, of course, the aspiration of the writer to see this study

become a catalyst to further research in the area of spatial injustice

113

as applicable to Primary Resource Regions.

As implied previously, the researcher will continue to examine the
concept of spatial equity and related socio-geographic concepts as ap-
plied to higher education. The search for dimensions of these concepts
most easily identified, analyzed, interpreted, re-synthesized, and
articulated from an internal perspective will continue. Opportunity
exists for the application of such efforts in the form of Ontario‘s
‘Design for Development‘ programme, and the University of Guelph's ‘Rural
Development Outreach Programme‘ to name but two.

It is to be hoped that geographers, especially generalists with
varying biases and competencies, will explore the social service delivery
dimension of social geography so competently identified by Harvey, Smith,
and Coates, Johnston and Knox. I

Through experience, and more recently through exposure to high level
expertise, academic responsibilities, and literature in the area of
higher education, the writer has come to appreciate the addition of
yet another component of knowledge to his own reserve. Higher education
is much more than an element of knowledge and an element of social ser-
vice delivery.

It is a potentially powerful instrument and vehicle to be applied
in creating awareness of, and a climate for, continuing improvements in
the area of social justice and ‘people-qualitative‘ oriented development
for all jurisdictions. It can exert such power best if it remains,
above all, a humane process/instrument/vehicle aimed at fostering a love

of learning, and at ‘turning out happy (and humane) mortals!

APPENDICES

114

APPENDIX A
RELEVANT REPORTS AND STUDIES

Higher Education in the Atlantic Provinces for the 1970‘s, a study pre-
pared under the auspices of the Association of Atlantic Universi-
ties for the Atlantic Maritime Union Study, Halifax, December, 1969.

Feasibility Study of Interinstitutional Cooperation, University of
Wisconsin - Superior, University of Minnesota at Duluth, and College
of St. Scholastica, February, 1975.

Report of the Advisory Task Force on Twin Ports Cooperation, Increasing
Cooperation amongUMD, Scholastica, ana UWS, LakefiSuperior Associ-
ation of Colleges and Universities, February, 1976.

The Learning Society, report of the Commission on Postsecondary Education
in Ontario to the Ministry of College and Universities, Ontario,
1972.

Report of the Conmission on University Programs in Non-Metropolitan
Areas, sUBMitted to the Minister of Education, British'COTUmbia,
September, 1976. Commissioner: W. C. Winegard.

Reports of the Royal Commission of Inguiry, Algoma Universit Colle e,
June, 1976 - November, 1977. Commissioner: JIWT'Whiteside, Q.C.

The Northern Dilemma: Public Policy and Postsecondapy Education in
Northern Ontario, preparea'for the’Economic CounEil of Ontario,
Discussion Paper Series, 1978.

The Ontario University_Sy§;em: A Statement of Issues, Ontario Council on
University Affairs, 1978.

Consortium Agreement, (Criminal Justice), between the University of South
Dakota and Northern State College.

Response to the Final Report of the Royal Commission of Inquiry into
Algoma University College, Board of Trustees, AUC, January, 1978.

Design for Development

Statement oy the Prime MiniSter of the Province of Ontario on
REgionaTDeveloment Palicy,‘AprTl, 1966

Northeastern Ontario Region,yPhase 1: Analysis, June, 1971
Northeastern Ontario Regional Strategy, March, 1976
Statisticalyflppendix to NE Ontario Regional Stragegy, March, 1976
Ontario‘s Future: Trends and Options, March, 1976

Northwestern Ontario: A Strategy for Development, January, 1978

115

Statistical_Appendix to Proposed Regional Development Strategy,
NW Ontario Region, Working Paper 1, Statistics, April, 1975

Ministry of Treasury, Economics and Intergovernmental Affairs,
Regional Planning Branch, Toronto.

Brief to the Ontario Committee on University Affairs, Ontario Confeder-
ation of University Faculty Associations, Toronto, March, 1979.

 

Proceediogs of the ConferEnce on Regional Development in Northeastern
Ontario, LaurentTanTniversity and Municipal Advisory Comittee for
NE Ontario, Laurentian University, Sudbury, February, 1976.

 

Proceeding§_of the Second AnnUal Conference, Municipal Advisory Committee
on ProvinciaT'PIanning in NE Ontario, North Bay, May, 1977.

 

116

APPENDIX B
TABLE 1

1975 (FALL) lst. YEAR INTAKE FULL-TIME UNDERGRAD
STUDENTS:PROGRAM AND REGION OF ONTARIO

 

 

 

Program Northern Ontario Southern Ontario
Number Z_ Number ‘2
Arts & Science 912 4.4 19852 95.6
(General & Yr. 1
Honours)
Engineering 52 1.6 3235 98.4
Commerce 5 Business 204 10.8 1691 89.2
Administration
PHRE 123 6.8 1674 93.2
Nursing 101 16.3 518 83.7
Social Work (Yr. 1) 89 36.9 152 63.1
Forestry 92 46.9 104 53.1
% of Above Intake 5.5 94.5
% of Total Population 10.5 89.5

 

Adapted from data derived from Ontario U.S.I.S. (1976) and Ontario MCU
Statistical Summary, 1975-76.

117
APPENDIX B

TABLE 2

1975 DESTINATION (FALL INTAKE) FULL-TIME AND PART-TIME
STUDY RESIDENTS FROM NORTHERN ONTARIO SUBDIVISIONS

 

 

 

 

Subdivision First Choice Second Choice
Full-TTme Part-Time Full-Time Part-Time
Sudbury Laurentian* Laurentian Waterloo Ottawa
45.7% 85.4% 10.9% 8.4%
Thunder Bay Lakehead Lakehead Western Waterloo
62.9% 94.0% 9.5% 2.8%
Algoma Laurentian Laurentian Western Waterloo
21.7% 84.1% 19.4% 5.2%
Nipissing Laurentian Laurentian Waterloo Waterloo
30.3% 85.6% 12.5% 3.7%
Cochrane Laurentian Laurentian Ottawa Waterloo
18.2% 79.9% 14.5% 7.5%
Timiskaming Waterloo Waterloo Western ---
15.6% 17.0% 14.3%
Kenora Lakehead Lakehead Western Waterloo
35.3% 79.1% 10.8% ‘ 9.6%
Parry Sound. Waterloo Laurentian Laurentian Waterloo
15.8% 35.4% 14.2% 9.6%
Rainy River Lakehead Lakehead Waterloo ---
34.8% 89.4% 13.0%
Manitoulin Laurentian Laurentian Guelph ---
26.8% 63.6% 14.3%

 

*In each case, Laurentian ‘system‘ (Map 2)

Adapted from data derived from Ontario U.S.I.S. (1976)

118

APPENDIX 8
TABLE 3
ONTARIO UNIVERSITY PROGRAMS: SHARE BY NUMBER AND 1 FOR LOCATION: (INTAKE-YEAR 1-1975)
Number 1 Hunter 1 Number _%_ Hunter _1_ ._I=_a_keheadlLaurentian
A5t76i Sci.(Gen.5 Yr.1.HanJ Toronto Western York Waterloo
2 . 5943 3715 17.9 3247 15.6 2752 13.3 912 L4.
Engineering Waterloo Toronto Qun‘s McN
3,287 769 23.4 652 19.9 429 12.1 396 12.1 52 129
Commerce 5 Bus. Adm. McM Windsor WLU Qun‘s
1,895 439 23.2 318 16.8 313 16.5 184 221 204 10.8
Phys., Health, A Rec. Ed. McM Waterloo West Toronto
, 7 365 20.3 334 18.6 296 16.5 118 _6_._6_ 123 goo.
Fine 5 Applied Arts York Windsor McM West
568 350 61.6 65 11.4 53 2;; 43 1E9
Hshold. 6 Food Sci. Guelph West Ottawa
423 318 75.2 85 20.1 20 521.
Agriculture Guelph
316 316 100.0
Music West Toronto McM Qun's
504 185 36.7 106 21.0 45 §;g_ 43 go;
Journalism Cltn
162 162 100.0
Nursing Toronto Windsor Ottawa West
619 112 18.1 109 17.6 87 14.1 79 12.8 101 16.3
Sec. Science West
106 106 100.0
Forestry Toronto EaFehead
196 104 3.1 92 46.9 92 46.9
Social Work Windsor McM Laurentian Lakehead
241 84 34.9 68 28.2 54 22.4 35 14.5 89 36.9
Architecture Waterloo Cltn Toronto
193 65 34. O 64 33.0 64 3gp
Phys. 6 Occup. Therapy Qun‘s West
87 52 59.8 35 40.2
Landscape Research Toronto Guelph
66 36 54.5 30 45.5
Industrial Design Cltn
33 33 100.0

 

 

Data Source: Ontario U-S-I-S- (1976) and Ontario MCU Statistical Summary, 1975-76.

119

APPENDIX C
ANATOMY OF A MODEL (AFTER CHORLEY AND HAGGETT, 1967)

. a model can be a theory or a law or an hypothesis or a
structured idea . . . it can be a role, a relation or an equa-
tion . . . Most important, it can also include reasoning about
the real world by means of translations in space (to ive
spatial models) or in time (to give historical models? . A
model is a simplified restructuring of reality which presents
supposedly significant features or relationships in a general-
ized farm. Models are highly subjective approximations . . .
they do not include all associated observations or measure-
ments, but as such they are valuable in obscuring incidental
detail . . . The most successful models possess a high prob-
ability of application and a wide range of conditions in which
they seem appropriate . . . (pp. 21, 22)

The most fundamental feature of models is that their construc-
tion has involved a highly selective attitude to information

. . models are structured . . . selected aspects of the ‘web
of reality‘ are exploited in terms of their connections . . .
phenomena are viewed in terms of a kind of organic relation-
ship . . . a successful model contains suggestions for its

own extension and generalization . . .

. . . A model must be simple enough for manipulation and
understanding by its users, representative enough in the
total range of the implications it may have, yet complex
enough to represent accurately the system under study.
(Chorafas, 1965, p. 31) . . . Reapplication is a prerequisite
far models in the empirical sciences . . .

Types of Models . . .

descriptive - stylistic description of reality: either
STATIC (concentrating an equilibrium structural features)

or DiNAMIC (concentrating on processes and functions through
time . -

normative - what might be expected to occur under certain
stated conditions . . .

Another View of models concentrates upon them as systems
which can be defined on the basis of relative interest of
the model builder in the input/output variables, as dis-
tinct from the internal status variables . . . (pp. 23-25)

120

APPENDIX 0
SUMMARY OR DESIGN FOR DEVELOPMENT PROGRAM

Design far Development, Statement by the Prime Minister of the Province
of Ontario on Regional Development Policy, Tuesday, April 5, 1966.

Page 1, preamble

"The following statement, ‘Design for Development‘, which I am
pleased to deliver on behalf of the Government of Ontario, is a docu-
ment through which the government expresses its concern that all econo-
mic regions of the province should share in a purposeful provincial
development programme . . ."

Page 2
" . . . In the first place, this government accepts the responsi-
bility of guiding, encouraging and assisting the orderly and rational
development of the province. In the second place, we believe that our
efforts should be complementary to the private sector of the economy in
helping to create an atmosphere for growth and development . . ."

Page 3

"It is the responsibility of the Ontario Government to assess the
present and future requirements of the province relating to social,
economic and governmental development . . ."

"Although separate and distinct, two of our principal objectives
are the provision of the best possible environment for our people and,
at the same time, the creation and maintenance of an atmosphere which
will encourage the economic growth and development throughout the pro-
vince. These two objectives considered together in the framework of a
programme designed to bring both qualitative and quantitative benefits
to all people in the province."

Page 9

" . . . The need for post-secondary education, for expanded techni-
cal facilities, and for adult retraining is pressing. Increased public
investment in education in the lower-income regions of Ontario is per-
haps the best long-run key to development . .'."

Page 25

"At all times, we shall be seeking means of ensuring that people in
all parts of the province share in the benefits of economic and social
development, and that regional development will be looked upon as an
integral part of this government‘s contribution to the development of
the province as a whole."

Design for Development: Northeastern Ontario Region, Phase 1: Analysis,
Department of Treasury and Economics, Ontario, January 23, 1971.

Page 242

121

EDUCATION

Goal: To provide opportunities and encouragement for each
individual to achieve his highest potential of in-
tellectual, personal and social development.

Educational facilities and level of attainment are contin-
ually improving in Northeastern Ontario, although the region
is still well behind other parts of the province. Again,

a population scattered over a vast land area causes prob-
lems in the provision of both adequate facilities and a
variety of educational opportunities . . ."

Desi n for Development: NortheastErn Ontario Regional Strategy: A
ro osed Strate , Ministry ofTTreasury, EConomics and Intergovern-
mental Affairs, Regional Planning Branch, March 19, 1976.

Page xvii
II c.

Page 48

EDUCATION

24. The province should continue the development of commu-
nity based education through broad community represen-
tation and through retention of existing schools."

The Social Strategy
1. Social Development Goals

The overriding principle of all recommended social policy
action in the regional strategy is that of equity in the
social well-being of Northeastern Ontario: social equity
for individuals, groups, and communities within the region,
and for the region Within Ontario. To the individual, social
equity implies the right of equal access to essential ser-
vices: . . . It also implies the right of equal access to
developmental services providing basic choice: education,
training and skill development, and communication. To the
group, social equity implies the protection and enhancement
of rights and identity . . .

The cost of providing a variety of social services on
a scale necessary to achieve social equity for all residents
of the Northeast will be extremely high. The vastness of the
region and its sparse settlement pattern may make the single
factor of access, for example, to educational and health
facilities, a 'cost' of living in the Northeast . . .

. . . Coverage will not be uniform, and tradeoffs will
have to be made in deciding upon levels of service through-
out the region. This does not mean that services and facili-
ties will not continue to be improved in the Northeast in the
future; on the contrary, the province, in cooperation with
other levels of government, will continue to upgrade its
programs and facilities in the Northeast . . .

Page 56

Page 57

" ii.

122

The four major urban centres of Sudbury, Sault Ste.
Marie, North Bay, and Timmins have social infrastructure
similar to those of other major cities in the province.
There are no significant disparities in the provision of
services or facilities with regard to health care, educa-
tional opportunity, communications . . . Therefore, this
report emphasizes somewhat the need for social services in
the smaller communities (apart from those named above).

In doing so, the strategy also emphasizes the service role
the.large centres must play in providing many of the higher
level social facilities (postsecondary education, special-
ist medical services, broadcasting facilities, etc.) re-
quired by the rest of the region."

EDUCATION

A comprehensive approach to education in Northeastern
Ontario addresses both the continuing process of individual
and community development and the unique needs of groups,
communities and the region. Such responsiveness relies on
decentralized administration, community-based delivery,
opportunities for participation, and a strong commitment
to formalized continuing education.‘

Education has been one of the most effective ways in stimu-
lating development in all parts of the province . . ."

123

APPENDIX E
SERVING AND DESERVING: DISTRIBUTION AND EXPLANATION

This text/map/table combination is intended to demonstrate the con-
trast in higher education serving (with ‘service-area‘ radius proportion—
ate to percentage of 1975 full-term full-time undergraduate freshman
enrollment for each Ontario university center) and deserving, (with ad-
justment in the normal social-service delivery criterion--population
density). Focus is on the Administrative Districts of Northern Ontario:
Nipissing, Parry Sound, Manitoulin, Sudbury, Timiskaming, Cochrane,
Algoma, Thunder Bay, Rainy River, and Kenora. These comprise what is
defined in this study as Ontario‘s Primary Resource Region, the ‘economic
colony‘ for Southern Ontario.

For the SERVING map, coding shows the districts falling within
service areas as follows:*

Nipissing, Parry Sound, Manitoulin - 3
Sudbury - 2
Algoma, Timiskaming, Thunder Bay,
Cochrane - 1
Rainy River, Kenora - O

The radii for the service areas, whose arcs are illustrated, are
proportionate to the percentage of fall full—time enrollment for each
center in the province containing at least one chartered university.
Peterborough (Trent University) has the lowest share (1.7%) and has been
assigned a radius of 1/4 inch. Radii for other centers are calculated
from this base.

For the DESERVING map, density has been calculated on a basis of
population occupying territory organized for municipal purposes,
divided by the area of such territory. (Raw density, derived by divid-
ing total population by total area is the normal calculation. These
northern districts, the only provincial subdivisions with land classi-
fied as ‘unorganized‘ by the Census of Canada, would all rank in the
bottom two sextiles on this map if raw density were used.) As a result,
.only three are left in the bottom sextile: Parry Sound, Manitoulin and
Rainy River. Only one of these, Rainy River, falls entirely outside the
service areas of the SERVING map. Parry Sound and Manitoulin fall in
the top service area category for the region.

Conversely, Kenora is in the bottom category service-wise, but in
the third sextile on the adjusted density scale. Algoma, also in the
third density sextile, is crossed by the arc of Toronto‘s service area
only. The other district in the third density sextile, falls within
three service areas. Timiskaming and Cochrane, falling within the Toron-
to service area only, are both in the fourth adjusted density sextile.

The two districts possessing chartered universities, Thunder Bay and
Sudbury, both stand in the second adjusted density sextile. Even at this
high level, they fall within one and two service areas respectively.

124

Figure II

 

‘73?" SERVING

     
 

       

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2
l
E a Base map adapted from
Based on data from Ontario MCU. {/975-767 ONO/7'0 (TE/GA) 1976 (0/

125

Figure l2

DE SERVING

 

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Population Density (adjusted for Northern Ontario ) - Sextiles -

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Ontario ( TE/GA I /976 (a)

126

The following chart illustrates the relative positions:

 

 

 

ADJUSTED DENSITY RANK IN SERVICE AREAS EMBRACING
DISTRICT PROVINCE: SEXTILES ALL 0R PART
Sudbury 2 2
Thunder Bay 2’ 1
Nipissing 3’ 3
Algoma 3 l
Kenora 3 0
Timiskaming 4. 1
Cochrane 4 1
Parry Sound 6 3
Manitoulin 6 3
Rainy River 6 0

Inequitable social-service delivery for Primary Resource Regions is
frequently attributed to remoteness and/or low population density.
Clearly, neither is a straightforward nor singular determinant of such
inequity, as is evident from the SERVING/DESERVING distribution and
rankings.

Obviously, the dominant space of the province occupied by this
Primary Resource Region, and the DISTRIBUTION of population within that
space (separated physically and philosophically from the province's
metropolitan region) is the basic challenge to which improved organiza-
tion efforts for greater spatial justice must be addressed. Compounding
this challenge, relative to social-service delivery in general and
higher education in particular, are such additional parameters as:
past and present governmental policy and programme; values, attitudes
and perspectives held by the general public; divergent principles and
practices within higher education; changing perceptions of natural
resource extraction/processing/utilization; residual and continuing
traditions and loyalties; external and internal views of regional devel-
opment as a process; and numerous potentials for improved 'spatial
justice'.

Much of the body of this study addresses itself to consideration of
these parameters.

 

*Dnly 16 of the 41 administrative/planning units in Ontario south
of the districts fall within as few as 3 service areas.

127

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FURTHER READING

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Burn, Barbara 8, et al. 'Higher Education in Nine Countries. New York:
McGraw-Hill, 1971.

Carnegie Commission for Higher Education. Colleges of the Forgotten
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New Students and New Places. New York: McGraw-Hill,

 

1971.

The Campus and theCity. New York: McGraw-Hill, 1972.

 

Where Colleges Are and Who Attends. C. Arnold Anderson,
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Dadson, D. F. On Higher Education. Toronto: University of Toronto Press.

Economic Council of Canada. Canadian Higher Education in the Seventies.
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Gardner, John W. Excellence. New York: Harper & Row, 1961 (Perennial
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Harris, Robin S. Quiet Evolution: A Study of the Ontario Educational
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134

135

Kintzer, F. C. Norway's Regional Colleges. Higher Education, 1974,
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Nicholson, N. L. The Religious Factor in the Location of Ontario Univer-
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Peet, Richard, (Ed.), Geographical PerspectiVes on American Poverty.
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1972.

 

Ross, Murray G. The University: The Anatomy of Academe. New York:
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Schofer, J. P. Determining Optimal College Locations. Higher Education,
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Torsten, Husen. Higher Education's Adaptation to Changing Social
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1975.

 

 

Problems of Securing Equal Access to Higher Education:
The Dilemma Between Equality and Excellence. Higher Education,
1976, Vol. 5, 407-422.

 

ICHIGRN STRTE UNIV. LIBRRRIES
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3129301 1096090