b3; 5/ 7W4! -. ‘ ' ' ABSTRACT ~THE FEDERATED UNIVERSITY STRUCTURE IN MANITOBA By Alexander Douglas Gregor 'The purpose of the study was to trace and analyse the historical evolution of that aspect of the constitution of the University of Manitoba which de- fined and governed the relationships between that institution and various private denominational colleges within the province. Several important issues prompt such a study. The provincial and federal goal of preserva- tion and encouragement of a cultural mosaic has, historically, been an hm- portant influence on the public school system, and the federated college structure has been a means of retaining religious and/or cultural identity while at the same time allowing the variant private institutions to benefit from, and benefit in turn, the publicly supported Provincial University. The evolving college structure experiment has provided an acceptable answer to the troubling issue of church-state separation, while at the same time providing a means whereby citizens of the province may simultaneously enjoy the benefits seen in private institutions and obtain the quality of educa- tion that unassisted private institutions could not provide. And finally, the federated college system provides one answer to an important current question facing large institutions: how can growth be reconciled with the personal, social and moral purposes that are defined as legitimate tasks of post-seoandary'education? The study was undertaken on the supposition that these general considerations would give the Manitoba college-structure GREGOR />( A‘o experiment an interest and importance to jurisdictions facing one or more of the same questions. The scope of the study was circumscribed to a consideration of the academic and administrative interfacings between the agencies of the Univer- sity government and the corporately autonomous denominational colleges, and to the controversies of principle and problems of practice arising from those relationships. Accordingly, the principal sources for the study were the records of the various bodies in which the interaction between the two jurisdictions took place - the minutes of the University Council, the Senate, the Arts and Science Studies Committee, the Board of Studies, etc. Important also were the various Government commission reports and public legislation (along with the public reaction to them as revealed through the Winnipeg newspapers) which assisted in focusing the principal controversies emerging from time to time, and in providing insights to the external influences playing on the University development. A wide variety of secondary sources is available, many of them able to serve a parallel purpose of revealing the peculiar perspective of the period in which they were written. The‘methodology employed was one of normal historical investigation, with an attempt simultaneously to discern the strands of evolutionary conti- nuity, and to respect the uniqueness of each period. The study revealed the development of two fairly discrete forms of association of college to University. One, deriving from the earliest con- stitution of the University, was a relationship of intimate academic associa- tion, with the colleges accepting the academic curriculum as defined by the University (with the colleges themselves participating in the various agencies of academic government), maintaining as their raison d'gtre the collegial w. .u" 4. .u l\‘{ -3 GREGOR ethos they could afford within the larger university community. The other derives from the experience the University has had with institutions wishing the privilege for their students of writing University examinations, for University credit, on the basis of work completed in a college. In such cases, the influence of the University would not extend beyond the conditions it would impose respecting the specific courses in question. Hence the col- lege would be able to protect the peculiar academic character and institu- tional ethos that were its raison d'atre, but at the same time be in a posi- tion to allow its students to enjoy some benefit from the public institution. In the form in which they exist at present, the two forms of association ap- pear to satisfy the range of institutional purposes which the denominational colleges of the province represent, and provide a means of answering the "college question." THE FEDERATED UNIVERSITY STRUCTURE IN MmNITOBA By Alexander Douglas Gregor A DISSERTATION Submitted to Michigan State University in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY College of Education 1974 ACKNOWLEDCMENT S The writer wishes to express his appreciation to his advisor and thesis coumittee chairman, Dr. J. G. Moore, for his advice, assistance and encouragement in the preparation of this study. The writer would like to thank as well the other members of the comittee, Dr. C. H. Gross, Dr. G. Ferree and Dr. G. Myers. Appreciation is extended to Mr. R. C. Armatage, Secretary of the University of Manitoba Senate, for his helpful criticism of the writer's conclusions, to the University of Manitoba Archivist, Miss Margaret I‘lficllenzie, for making available a wealth of source materials, and to Miss Doreen Shanks, the University of Manitoba Education Librarian, for her bibliographical assistance. 11 TABLE OF CONTENTS Acknowledgments . . . . . . . . . . . . . . . . CHAFHHI I II III IV INTRODUCTION Purpose of the Study . . . . . . . . Importance of the Study. ... . Methodology. . . . . . . . . Sources. . . . . . . . . . . Limitations of the Study . . . . Organization of the Study. . . . . . THE DEFINING INFLUENCES Formative Traditions . . . . . . . . The Role of Individuals. . . . . . . The Denominational Stances . . . . . The Role of Religion . . . . . . . . The College Purpose. . . . . . . . . PROGRESS TOWARD A TEACHING UNIVERSITY University Teaching. . Professional Studies . . . . . . . DEFINING THE UNIVERSITY STRUCTURE Consequences of the 1910 Commission. President Board of Governors Senate Faculty Councils Page ii 14 22 28 34 42 50 70 73 77 117 117 121 128 133 V VI VII VIII -THE SITE QUESTION DEFINING AFFILIATION Approved Centres . . . . . . . . . . . . Canadian Mennonite Bible College Mennonite Brethren Bible College St. Andrew's College Religion in a Public University. . . . . THE SEPARATED COLLEGES Brandon College. . . . . . . . . . . . . Affiliation St. Boniface College . . . . . . . . . . The Latin Philosophy Compromise AMINISTRATIVE AND ACADEMIC RELATIONSHIP College Autonomy . . . . . . . . . . . . Student Discipline . . . . . . . . . . . . . . . . . Interdigitation with the Central Academic Committees Participation in Central Academic Comittees University Policy Decisions Difficulties _Academic Program of the Colleges . . . . . . . . . . Introduction of Courses and Planning of the Total Program Examinations Page 139 163 169 169 171 176 179 193 193 202 223 234 253 253 259 262 262 269 286 294 294 303 I...) )‘—‘l Page IX TOWARD A REDEF INING OF THE UNIVERS ITY-COLLEGE RELATIONSHIP 308 Academic Difficulties . . . . . . . . . . . . . . . 311 The Introduction of Senior Science Courses 311 Honours work 316 The Community of Colleges . . . . . . . . . . . . . 319 St. Boniface College. . . . . . . . . . . . . . . . 334 X SUMMARY 340 BIBLIOGRAPHY 349 APPEND ICES ’ 358 CHAPTER I INTRODUCTION Chapter I Purpose of the Study The purpose of the study is to trace and analyse the nature and evolution of denominational college affiliation within the secular state University of Manitoba. Importance of the Study Manitoba has been, historically, a province committed, by the nature of its deveIOpment, to the principle of cultural mosaic. Large influxes of immigrant groups have strived to retain and maintain ethnic communities and the inculcation of heritage in the generations born in Canada. For many of these peOple, the public school posed the unacceptable threat of cultural assimilation; private schools thus be- came seen as a necessary agency in the retention of cultural identity. AI the same time, however, few of the groups wished the goal of iden- tity to be won at the eXpense of exclusion from the social mainstream. Thus the problem became one of interfacing two discrete entities - a secular state1 university and denominational and ethnic colleges - so that the student could receive specified benefits of both. On the one hand would be the carefully structured and controlled environment (often extending into residence) of the corporately-autonomous college, creating the sensibilities of religious purpose and cultural heritage; on the other hand would be the variously delimited exposure to the University, in the form of particular courses undertaken for credit 1The term "state" has been used in this study tO‘mean "public and government-supported. " l toward a recognized degree. (The eXposure would be variously limited in accordance with the degree of cultural threat that eXposure would entail for each ethnic group.) Thus the question of accommodating a college structure bears a very real relationship to the larger ques- tion of social mosaic - a provincial commitment of two faces. Ethnic grOUps must be able to retain and,further their heritage and at the same time they must be able to remain within the social mainstream and enrich the larger society by eXposure. Mosaic implies not discrete entities, but a harmonious and enriching whole. And this goal the federal University seems uniquely fitted to realize. The deveIOpment of the University of Manitoba has reflected the province's commitment to this educational purpose. Accordingly, the present constitution of the institution is probably unique among Canadian institutions, in affording mechanisms for the mutually satis- factory accommodation of private institutions. Hence an understanding of the course of develOpment of affiliation affords an insight into its most effective application in the present, and into the best means for its future expansion. The matter is particularly important at the Inesent, when final decision on the mode of subsequent development of the principal institutions of higher learning has not yet been taken. A difficult choice between the more economical and efficient faculty- monolyth and the community of colleges Option faces planners, a choice made eSpecially difficult in the light of the current impulse toward 'Mumanizing" the University experience by a reassertion of community. Study of the University's history reveals the options available, the consequences - economic and academic - of these Options, and the re- lationship of the options to the larger provincial goals of cultural mosaic. In many reapects, the historically-based university constitu- tion means that the choices to be made are unique to the province, and have to be analysed in terms or the provincial University's history. In the case of the college structure, any effective planning of the fhmure implies a close and sensitive awareness of the past. As the very constitution of the institution reflects a college presence, it is not meaningful to speak or the "nature" and "effects" or college relationship in abstract terms. The nature and effects will be direct functions of the peculiar constitUtional structure by which the col- leges are associated with the University. Methodology The study is based in large part on historical inference. The extensive records of University government have been examined with a View to deriving basic tendencies and relationship, and the evolution Of these, as they are based in the detail of academic debate and adminis- trative machinery. Every attempt has been made to view these tendencies and relationships within the context of their historical periods. A continuum and evolution is obvious today, but in each period the Univer- sity responded to unique circumstances, and certainly without the pre- sent structure as an ultimate destination. Caution has been exercised, therefore, in imputing, to the agents of change and deveIOpment in each of the periods, a consciousness of patterns and tendencies apparent now. ii ‘5 " II Sources The primary sources of most importance to the study were those containing the detail of academic policy and administrative machinery - the minutes of the University COuncil, the Senate, the Arts and Science Studies Committee, the Board of Studies, as well as the annual Univer- sity reports. As these cover virtually the full history of the Univer- sity, the gradual evolution of college-University relationship is re- vealed as a living body and not as a series of artificially neat ab- stractions. Several important government studies (along with public reaction to them, as revealed through the Winnipeg newSpapers) afford Clear insights to the external influences playing on the University deveIOpment. A number of secondary writings exist that may at the Same time be treated as primary sources; earlier University and college members writing on the "history" of the institution reveal attitudes tOward the college-University relationship that help put their own Periods in clear perspective. Finally, various more objective primary dOcuments exist in the form of provincial statutes and University policy dOcuments and reports. There is, as well, a significant body of secon- dary sources which can be used to serve the principal function of re- lating the Manitoban experience to a larger Canadian context - indica- ting those things which are unique to the province and those things more typical of nation-wide tendencies. limitations of the Study The scape of the potential field of investigation is such that a delineation of the scope of the present study was necessary. Essentially it deals Specifically with that area of academic and adminis- trative policy where college and University formally meet. The internal organization and activities of the colleges have, therefore, not been considered, except where they may be seen to play a part in effecting the formal relationships of college to University. Because of the in— creasingly clear delineation made, in reSpect of this relationship, between "academic activities" and "college purpose," the limitation on the study does not seem to detract from the underlying purpose of ana- lysing the relationship itself. .Organization of the Study As W deals with the inception of the University of Manitoba. the University was by its nature virtually a congeries of denominational colleges, the nature and orientation of the constituent colleges would quite naturally affect fundamentally the early nature and orientation of the umbrella institution. Similarly, the college orientation of the y("Jug university would influence strongly the deveIOping constitutional relastionship of colleges and University. W considers the fundamental alteration in the nature of the u“iversity and the relationship of the colleges when the former insti- t“tion departed from its original form as a non-teaching, examining and degree-granting body, and became gradually a fully-deveIOped teEChing university. W deals with the bitter controversies of the first two decades of the twentieth century, as the University was transformed from a col- lege-dominated institution to a secular state University of the Midwestern sold. Chapter V treats the extended debate on University siting, an issue of some consequence in determining the intimacy of relationship the variously-situated colleges would have with the larger institution. Chapter VI traces the historical deve10pment of a University policy on college affiliation in its various forms. Chapter VII examines the peculiar relationships with the University of the geographically separate Brandon College, and the culturally separate St. Boniface College. _Chapter VIII outlines the major aspects of college-University academic and administrative relationship through the course of the University history. ‘Chapter IX examines the present form of college-University relation- ship - the "Community of Colleges" concept developed during the latter 1960's to answer a context for which the older form of association was no longer adequate. .Chapter X provides a general summary of the nature and purposes of affiliation, and its place in the subsequent deve10pment of the institu- tion and in the furtherance of the larger social goal of cultural mosaic. CHAPTER II THE DEFINING INFLUENCES The University of Manitoba is probably unique among higher institutions in Canada and in the United States in that it is the direct outgrowth of the voluntary association of a group of pre-existing private colleges that are still in Operation under terms of affiliation with the central institution.1 The word "unique" appears frequently in descriptions of the University of Manitoba, and reflects the peculiar constitution and nature of an institution which was not planned ab initio as a univer- sity per se. Rather it had its nature as a university molded in large Part by the character and purposes of autonomous and long-established Church colleges. And these colleges were in a position to define the 1nitial conditions of their voluntary association - that is, the con- 8titution of the University itself. Because of their continued pre- dominance within the larger body over several subsequent decades, they were able as well to play a prime role in defining the character of 1'58 evolution. Thus, even as the circumstances of a deveIOping pro- vince gradually compelled deveIOpment of a state university, the nature (If that "state" institution accommodated in large part to the founda- tion upon which it was built, so much so that at least one recent com- u‘entator can see the original pattern of affiliation maintained.2 lRegort of the Commission on the Possibility of Readjusting the Relation of the Higher Institutions of Learning (1924), p. 58. 2A.S.R. Tweedie and J. B. Rollit, "The University of Manitoba," unpublished notes for an article for the Saturday Review, 1951. ‘l Such a comment could not really be seen to obtain today, as the necessity for rationalization of post-secondary education has resulted in certain fundamental modifications in the relationship of colleges to University. Yet the overriding consideration remains - accommoda- tions have been, and continue to be, made to permit denominational colleges to remain at once integral components of an organic univer- sity, and college communities, faithful to their original raison d'etre. And this accommodation has been, and is, at the same time broad enough to satisfy the needs of a spectrum of college types - from St. Boniface (Rulege which incorporates in its eSpoused purpose a cultural as well as religious mission and which consequently,seeks an almost complete antonomy, academically and institutionally, and ranging to St. John's College which apparently sees little danger in a very close academic 1Integration with the university, on the university campus itself. It iEithis ability to effect such mutually satisfactory arrangements ( for the benefits are certainly not all on one side) and at the same tiime to answer the legitimate demands a province will make on its litincipal institution of higher learning, that makes the University c>f'Manitoba unique, and its lesson valuable. Perhaps paraphrasing Charles Homer Haskins, watson Kirkconnell in 1938 suggested that the University of Manitoba "like the universi- ties of medieval Europe, is a child of the Christian church."3 3Watson Kirkconnell, Golden Jubilee of Wesley College 1888-1938 (Winnipeg; Columbia Press, 1938), p. 13. (krtainly, having its origin in a "theological halo"4 would not make the university unique in North America. What is significant, however, is the fact that the "university" established in 1877 remained until 1889 "a legal corporation only, and the colleges material structures 6 as well as corporations . ."5 While it grew as a "conception," 'K . . for nearly half of its history, the University existed largely as a 'holding company' for these Arts colleges of the church . ."7 The consequences of this situation are significant. Of primary impor- tance, perhaps, is the fact that the university, constituted as it was by the Act of 1877, did not present any threat to the effectual auto- nGilly of the individual colleges that comprised it. The university, in any corporate sense, was the collective expression of the represen- tatives of the colleges, each of whom was very conscious of the auto— nOmy of his institution, and each of whom could be relied upon to raise a cry if any attempt were made to expand the very limited powers of the central body. Consequently, there seems to be, in the early Years of the institution, no view of the university as "other" - as an entity in some aspects at cross-purposes with the colleges; the It was not until uIliversity was what the colleges defined it to be. the end of the century, when the university began to assume the l‘Ralph Fleney, "The Evolution of a Western Canadian University," reprinted from A Miscellany Presented to J. M. MacKay, LL.D., 1914, ppe 69" 700 5W. L. Morton, One University: A History of the University Of Manitoba (Toronto: McClelland and Stewart Limited, 1957), p. 33. 6l’leney, 93. cit., p. 71. 7Kirkconnell, _o_p. 25., p. 13. 10 8 dunacteristics of a true university, that the colleges began to grow defensive and see themselves as part of a dichotomy in higher educa- tnxn and hence seek an institutional arrangement wherein they could cmmflement a system of higher education that was no longer entirely in their image. The development of such a polarity was in fact implicit and pos- sible in the early constitution of the institution, in which, as W. L. Morton notes, "there was no bar to expansion of the jurisdiction of the university into other fields than liberal arts . . ."9 But the Precipitousness of the university's establishment10 meant that it did 8Despite the rubric, the "university," albeit augmented by various professional schools, was in its Arts and Science component very much tied to traditional college purposes: ”The time for attempting the ultimate work of universities, the advancement of knowledge, would come later. Teaching by the colleges, to a good standard, to be maintained by the university as an examining body, was the prime concern of the university in its first years." Morton, -_2. it. , p. 40. 9 Ibid.,-p. 28. 10"NO other province in the Dominion had ever possessed university facilities at so infantile a stage in its history . ." A. B. Baird, "The History of the University of Manitoba," in Manitoba Essays, ed. by R. C. Lodge (Toronto: The MacMillan Company of Canada Limited, 1937), p. 35. 'The pOpulation of the Province of Manitoba in 1871, according to the Official census was 25,228. Of this, 7,798 were white, 7,590 were Indians and 9,840 were partly Indian. In 1876 when the pur- pose to found the University took shape, the white pOpulation must have increased somewhat by immigration. It was not, however, until 1879 that anything like a strong stream of new-comers from Eastern Canada began to flow into this country. It was surely a bold enterprise for a few educational enthusiasts to plan a univer- sity for a constituency of less than 10,000 people." Ib___i__d. p.19. 11 run grow out of needs perceived by the community, which might have remflted in encouragement of an institution more closely akin to the Nunican midwestern state university (which did subsequently become a umdel), but rather that it grew out of an impulse on the part of per- sons concerned with the existing colleges, to facilitate - but not alter in any fundamental way - the work they were already undertaking. It is Obvious that the government of the day had little intention of nurturing a "state university;"11 it was willing to give it birth and lay it on the doorstep Of the church colleges (with the caveat of right of reclaiming at a later date if broader use of higher learning grew to be of interest to the state). Hence the Attorney-General of the Province, the Hon. Mr. Royal, could move the second reading of the 1877 University Act bill with the following comment: The Government have been urged during the past two years to submit a measure for the institution of a University and the Government have consented and in so doing have endeavoured as far as possible to meet the views of the different parties seeking the establishment. The Government thinks the bill premature, but have been so repeatedly urged that they have brought it down. The bill only provides for a University to grant degrees, and for graduating purposes, but will not be a teaching institution. The bill, however, provides that hereafter chairs may be attached and endowed and it become a teaching institution as well. It is in the light of this attitude that a subsequent (1885) defining of the university, on the part of the University Council, its Soverning body, may be interpreted. The Council may be describing a Situation fashioned more by Governmental indifference than by any articulated policy toward higher education: 11As late as 1916, commentators remark on prior governmental in- difference to the progress of the University. Canada Annual Review, 1917, p. 739. 12Minutes of the University Council, 22 November 1889, p. 301. 12 This University may be said to consist of a Republic of Colleges to which in conjunction with the Graduates of the University the State has practically committed the direction and goVernment of the university. The State does not interfere with our Colleges beyond satis- fying itself before affiliation that as regards buildings and teaching staff a College is competent for directing its students in the studies of the University. Each College can make its own regulations as to worship, religious teaching, and discipline. The main cost of the Education of the University is at present borne by the several colleges. The nature of the university that emerged in 1877 was further affected by the fact that the institution, though not something that the colleges would Oppose- and, in fact, something they had discussed,14 ‘ 13Minutes of the University Council, 14 September 1885, p. 43. 14"The question of a future University was no doubt in the minds of the leaders in the different colleges. . . . But the diffi- culties financial and sectarian seemed so insuperable that no formal meeting with the expressed object of discerning it seems to have been held. It does not seem to have been a matter of debate by the College Boards either separately or jointly." A. L. Glenn, "A History of the University of Manitoba, February 28, 1877 to February 28, 1927." Unpublished M. A. thesis, University of Manitoba 1927, p. 23; cf. also APPENDIXiI. "When there was any discussion of the future it was in a striCtly academic sense and without any expectation of immediate action or demand for such a thing. It is true that the BishOp of Rupert's Land said in public that he would like to see some means by which the young men whom he was training for the Anglican priesthood, could receive an academic degree before proceeding elsewhere for what ought to be called post-graduate studies, but he did not follow up this pious hope with any concrete plan for immediate action." Baird,.gp. ci ., pp. 19-20. l3 cmmzabout before they as institutions had come to any formal decision m1the matter. Indeed, it would appear that they were not even for- umflly consulted prior to introduction of the bill. Considering, how- tnmr, the relatively close informal communication that tended to exist among the church, college and government leaders, it may be fair to assume, as one investigator has, that the lack of formal intercourse may be interpreted as at least lukewarm consensus on the preposal.15 And while the patent desirability of instituting an agency which would permit the conferring of nationally and internationally recognized degrees, and hence eliminate the need for travel East to complete the ‘work undertaken in the denominational colleges,16 and deSpite the co- operative and friendly relationships that had evolved among all of the denominations in the Province, nonetheless the basic philosOphies of education differed significantly enough that the colleges, which were tOenter the co-Operative venture voluntarily, would be unlikely to aCcept anything more than a fairly loose federation, and "for a con- EBIderable time had little conception of or desire for anything further."l7 \ 15Glenn,.gp. cit., p. 28. 16The colleges had apparently been offered degree-granting powers by the provincial government, but had declined the offer, sup- porting rather the notion of one recognized provincial degree- granting institution. Kirkconnell,‘22. cit., p. 28. 17Fleney, op. cit., p. 70. 14 It would be a matter of practical wisdom, then, for the prOposers of the bill to design a union that compelled the colleges to touch only on matters considered essential - examination (but even here, only on subjects not susceptible to sectarian controversyls) and degree con— ferring. Again, the odd circumstances giving rise to the university dictated a peculiar form. FORMATIVE TRADITIONS An attempt to delineate the various traditions and historical preconceptions must, of course, take into account the institutional backgrounds of the principals involved in shaping the new university, the relative applicability of these models to the peculiar needs of multi-denomination and bicultural compromise, the peculiar problems facing a frontier province and the larger context of the new Dominion. With respect to the latter consideration, the president of a more truly state university (The University of Saskatchewan) was able, at the fiftieth anniversary of the University of Manitoba, to see in the Manitoba experiment an application of the principle of federalism that ten years before had permitted four disparate provinces to form a single country and at the same time retain much of their original autonomy. Three months ago we celebrated the sixtieth anniversary of Confederation; today we commemorate the fiftieth anniversary of the establishment of the University of Manitoba. The two events are not unconnected. The University of Manitoba, is, I believe, the first fruits of the spirit of Confederation working within the academic sphere. ' lalbid. 15 Two principles were observed in the Confederation of the Provinces - the autonomy of each Province in matters of provincial interest and the co-operation of the group for common purposes. These two ideas were equally applicable to the co-Operation of the colleges for University purposes - the autonomy of the college in the teaching and discipline of the students, the co-operation of the group for the purposes of examining and conferring degrees.1'9 Some criticism may be made of such an analogy (for federalism does imply two discrete jurisdictions and, significantly, perSpectives - a factor which, as already suggested, did not really appear at the University, until a redefining of the institution (as something dif- ferent in kind from the colleges) took place toward the end of the century). But when that transformation does occur, the federal model becomes an interesting tool for analysis of evolving university-college relationship. The controversies which later attend the question of university teaching (below, Chapter 2) may well fit Dr. Murray's model and "spring from the federal system which always encounters difficulties in adjusting the claims of the units with those of the central organi- zation."20 But the important consideration remains that however much the federal model influenced the subsequent deve10pment of the insti- tution, it was perhaps the only feasible structure that would satisfy 19W. C. Murray, "The Fiftieth Anniversary of the University of Manitoba," The University of Manitoba Quarterly (December, 1927), p. 6. ‘ Interestingly, the Manitoba federal model was seen by a Governor General, Earl Grey, as a prototype for eventual "organic union" of the disparate elements of the British Empire. Minutes of the University Council, 12 October 1905, pp. 109-110. 2oMurray,‘9-p. cit., p. 8. 16 the minimal purposes of union without doing damage to what were con- sidered even more important factors. Prime among these would be the preservation of the vitally important role of religion - and hence of the Churches - in education.21 This was a period of growing recogni- tion of the rights and obligations of the state in higher learning (a recognition not backed by financial support of any significant por- tion for some years to come); but it is not until the first years of the next century that serious argument for secular education is heard. Thus any structure that was intended to facilitate state obligations and desires would have to accommodate itself to the existing church colleges; and here again the limited integration and protected autonomies 21The following address, given by the Moderator of the Presbyterian Church, on the occasion of Manitoba College's fiftieth anniversary, paints an effective portrait of the papular attitude to religion in education, as it existed in the simpler frontier setting of Manitoba in the 1870's: "This Jubilee Celebration of Manitoba College recalls how those Selkirk Settlers of 50 years ago were true to their blood strain. The mark of Scotland upon our civilization is the mark of a disciplined mind and regnant conscience. The Church and the School constitute the hallmark of civilization of the Scottish type. The educated and right doing man is the finest product of this race . . . . Both School and College they needed for their intellectual self-respect, but very specially for the supply of the deepest and finest of all their deep and fine passions, the passion for pure religion. Education and religion cannot safely be divorced; for educa- tion without religion only sharpens weapons for the murderer and the thief, and religion without education forges chains for superstition and tyranny." Rt. Rev. C. W. Gordon, "The Moderator's Message," in Manitoba College, ed. by W. G. Rumball and D. A. MacLennan (Winnipeg, 1921), p. 11. 17 of a federal system might well have appeared the only viable means to such a goal. In providing a model which could thus satisfy the peculiar temper of the times, Manitoba became the mother of an insti- tutional form in Canada that for a time at least permitted higher education to modify itself to new demands and retain at the same time much of its traditional nature.22 If the state university had thus to accommodate itself to the college definitions of higher learning, it would quite naturally be shaped, in part at least, in their images (which images varied quite significantly according to the traditions on which the respective col- leges were based). President Murray23 could discern in the institu- tion influences of the University of Paris,24 Oxford University and 22". . . Manitoba and Toronto have effected a compromise which safeguards state rights and in the main satisfies the churches. Manitoba pointed the way; Toronto was the first to reach the goal. The secret of success lay in the application of the federal principle. Other Universities in Canada have adOpted a modified form of the principle and through affiliation have effected satisfactory relations with theological colleges." Murray,‘gp. cit., p. 7. 231bid. 24"The third of the old Universities, the University of Paris, the home of theology, and the servant of the church, is re- presented in the traditions which have come through New France and through Oxford. Probably no University in the New WOrld reflects so faithfully the influence of the old University of Paris as does Laval and its descendent, St. Boniface." Ibid. 18 Trinity College, Dublin.25 BishOp Machray, father of St. John's College, has been seen to have attempted to make the college "a unit in an aggregation which should make the university a compound of Cambridge and London."26 25"libelieve St. John's College has good reason to acknowledge an indebtedness to both the English and Irish Colleges." Ibid. A rather dominant role was assumed by St. John's College in defining the academic character of the University - an influence due, probably more than to anything else, to the personal pres- tige of BishOp Machray. He chaired private meetings of represen- tatives of the founding colleges, held at St. John‘s College, at which it was decided to employ the curriculum of study and method of examination characteristic of the English universities (the system of Preliminary Previous and Final Examinations). In giving the University this orientation - "a continued emphasis on classics and mathematics which would 'train the logical and literary faculties of the students'" - the colleges were, pro- bably totally unconsciously, drawing the battle lines of sub- sequent confrontation with the professions and science. W. J. Fraser, St. John's College, Winnipgg, 1866-1966: A History of the First Hundred Years of the College (Winnipeg: The Wallingford Press, 1966), p. 30; Glenn, 22-.£££-: p. 36. What is important also is the emphasis the colleges placed on adhering to their traditions; for such an emphasis would affect in a very real fashion how they would be willing to accommodate themselves to and within the University. Dr. G. L. Broderson, dean of studies at St. John's College, remarked in 1966 on the "continuity that has marked St. John's College over the past century." G. L. Broderson, "St. John's Faithful to lOO-Year-Old Traditions," The University of Manitoba Alumni Journal, Vol. 27 (Winter, 1967), p. 18. 26"St. John's College," The University_of Manitobagggarterly (September, 1927), p. 21. The University of London plan - that of a non-teaching examining and degree-granting agency - although not oriented in quite the fashion originally envisioned by Napoleon and as instituted in England to accommodate dissenters academically disenfranchised by the Articles, was a particularly attractive concept, in Canada, in dealing with the problem of the denominational colleges. W. C. Murray, "Manitoba's Place in University History," Transac- tions of the Roval Societv of Canada, Vol. XXII (1928), p. 69. 19 But equally as important as the EurOpean models were the ex- periences Eastern Canada was having in deve10ping a system of higher education, experiences which, as a result of Manitoba's very sudden surge forward during the latter third of the nineteenth century, were telesc0ped in the deve10pment of the University. "To alter the words of the poet ever so slightly, 50 years of Manitoba is equal to a cycle of Ontario."27 And, significantly, the leaders of the Western insti- tutions were almost to a man products of the Eastern experience.28 Rather fortunately for the Manitoba experiment, these men had seen in the East the rocks Upon which the traditions could flounder. One of the most important lessons they had learned, and one which affected significantly the University of Manitoba's federal structure, was that denominational competition for limited resources must not be permitted to weaken the entire fabric of higher education. In Eastern Canada, 27W. T. Allison, "Past and Present: Review of wesley and Manitoba," The Gleam, Volume 1 (November, 1913), p. 1. 28In his study of the history of Wesley College, Watson Kirkconnell notes of the original staff that "all six men had received their preliminary training at Victoria College or at Toronto University, and represented on the whole, like most of that generation in the West, a westward projection of the life and traditions of Ontario." Even in later stages of deve10pment of the college and the province, the hold of the East remained strong. Kirkconnell, commenting on the fifty years preceding 1938, remarks that "of the seventy-three Arts instructors who have taught in Wesley College, . . . twenty- eight have been from Victoria or Toronto, and these, along with six more from Queen's, have set the stamp of Old Ontario indelibly upon the institution. This becomes still more evident when one considers length of service . . ." Kirkconnell, 22. cit., pp. 16, 45. 20 . . the early Colleges were called into being by the Churches and were welcomed and aided by the Provinces. But soon denominational rivalry set up college against college, demanded equal grants from provincial treasuries until govern- ments in dispair renounced all reaponsibility for higher edu- cation, as in Nova Scotia, or left the provincial colleges de- pendent upon an initial endowment of land, as in Ontario, or upon a small annual grant fixed by statute long before strife had begun, as in New Brunswick. This consideration seems to have been ever present in the minds of the college leaders, and more than once matters of principle or autonomy have been voluntarily surrendered in order to preserve the valued "One University." As well as feeling EurOpean and Eastern Canadian influences, the early development of the University was affected to an increasing extent by the deve10pment of the unique American eXperiment - the Land Grant state university. Indeed, several Canadian universities, including Manitoba, had, growing beside them, a concrete model of this new concept.30 As these institutions gradually became incorporated 29Murray, "Manitoba's Place," p. 59. 30"Within the Federation at Winnipeg a place has been found for the College of Agriculture, which in common with all the younger Colleges of Agriculture in Canada, traces its origin, ideas and animating Spirit to Guelph - the Alma Mater of their first principals and the great majority of their professors. At Guelph, Dr. Mills adapted the ideas and practices of the American Land Grant Colleges to the needs of Ontario and indirectly to the whole of Canada. Possibly the oldest land grant college - that at Lansing, Michigan, like the first State University at Ann Arbor - stimulated and directed through suggestion the activities of the educational reformers in Ontario." Murray, "Fiftieth Anniversary," p. 7. 21 into the universities themselves, the orientation and priorities they implied could not help but'modify the definition of "university," as it was derived from the affiliated Arts colleges, and in so doing, ‘modify the place and role of those colleges within the university. A second American influence, present even before the founding of the University, was the mndel of State University of New York. Speaking at a convocation of Manitoba College on January 28th, 1876, IMr. J. W. Taylor, the United States Consul, impressed on his audience the desirability of a State University, although he was less than optimistic that the province was ready for the Michigan teaching- universitmeodel. The suggestion was made, however, that the needs of Manitoba (clerical and state) might be met by the New York model, having the existing denominational colleges affiliate under a board of regents. "To such an organization, besides the surveillance of high schools and colleges,‘might be entrusted the custody of a provincial library, the collection of‘memoirs and other materials of history, and the foundation of a mseum of natural science in connection with the geological survey "31 Though an idea not utilized in of the North West, now in progress. the initial constitution of the University, the desirability of having the university perform a role in a rationalized and integrated educa- tional pyramid proved also to affect significantly the role and impor- tance of the arts colleges. 31Glenn, 2;. 91;” pp. 23-24. 22 THE ROLE OF INDIVIDUALS In large part, the impact the colleges had in defining the university structure was in effect a matter of dynamic individuals - church and college leaders who in the complex of their interrelation- ships, and on the basis of their various character traits, personal and academic backgrounds and present circumstances, forged the unique constitution of the university. And if it was for many years a uni- versity without locus or building, it was all the more so a congress of individuals - a reflection of the personalities dominating the University Council. A chancellor of both St. John's College and the University, Anglican ArchbishOp of Rupert's Land, the Most Reverend Robert Machray, was in a position to impress his vision of education on the University of Manitoba. And this vision is perhaps nowhere more apparent than in the collegial purpose the institution took - an emphasis English in general derivation but one reinforced by Machray's belief that "great- ness depends more on the character of a peOple than the material re- sources of the land; and that education, secular as well as religious, is the greatest force in moulding that character."32 His successor, The Most Reverend Samuel P. Matheson, bears an even more impressive catalogue of offices: "Archbishop of Rupert's Land (1905-1931), Primate of Canada (1909-1930), Chancellor of St. John's College (1905-1931), 32J. 0. Murray, "ArchbishOp Machray and St. John's College," The University of Manitoba anrterly, (December, 1927), p. 23. 23 formerly Deputy Headmaster of St. John's College School and Professor of Pastoral Theology in St. John's College, Chancellor of the Univer- sity of Manitoba 0905-1933)."33 A similar catalogue would obtain in the cases of the leaders of the other denominational colleges, as, for example, the famous French Catholic ArchbishOp Tache of St. Boni- face. The power and prestige of the colleges during the early years of the university was in no small part a result of the University's 34 highest offices being held by college leaders, of the position of ecclesiastical and social leadership the college leaders enjoyed in 33The Canadian Churchman, 21 October 1937, p. 585. 34Equally as important as the highest offices in the University, however, in shaping and directing the development of the insti- tution, is involvement in its principal academic and adminis- trative committees. Dr. George Bryce of Wesley College and Dr. Hart of Manitoba College serve to demonstrate the intimate role the college leaders played in this respect: "fDr. Bryce] has been a prominent member of the University ever since, having drawn up many of its statutes, acted as Chairman of its Arrangements and Finance Committees and an Examiner in higher English and Science, from its first examination in 1878 to the present time, as he had been Examiner in Toronto University in 1871 and in 1872. For three years Dr. Bryce has been Chairman of the Science Com- mittee, having charge of teaching under University auSpices in Winnipeg." "Sketch of the Life of Rev. Dr. Bryce," Souvenir Number of The Manitoba College Journal, 1893, p. 150. "In 1877 (Dr. Hart] was one of the founders of the University of Manitoba. He has been a member of the Council of the University ever since its foundation, and since 1880 he has been Secretary of the Board of Studies of the University, and since 1878 an examiner in Classics. He is a member of the Board of Management and of Manitoba College and Secretary of both bodies." "Rev. Professor Hart," Ibid., p. 152. 24 35 the larger community, of the direct link between the highest levels of church and college, and of the intimate interfacings of the college d.36 It may also be leaders with other levels of the education pyrami conjectured that the realistic perSpective and practical acumen which will be developed in successful men of affairs may account at least 35The link Manitoba College enjoyed with the community would have been more immediate and intimate by the fact that the college's principal figures - Baird, King, Grant - all held pastorates simultaneously with their academic work. Souvenir Number, pp. 135, 136, 137. To take the example of Dr. Bryce: "On Professor Bryce coming to Winnipeg he was in addition to his professorial work entrusted with the care of Knox Church. He organized it in 1877, and has ever since been either Mbderator or a member of its session." Ibid., p. 150. Significantly, the denominations (and hence to varying degrees their colleges) were heavily committed to missionary enterprise in the West. Andrew Baird, for example, was, as well as college teacher and administrator, Joint Convenor of the Foreign Mission Committee in Winnipeg, which had control of the Northwest Mission to the Indians. "Biography," Souvenir Number, p. 136. This type of enterprise extended the scope and perspective of the colleges - and their support base, financially and socially - from what might be expected in a more purely local institution. It also gave the colleges a complex of unique functions and re- lationships that would belie any argument that they could simply be "replaced" as academic units by a growing state university. 36Dr. George Bryce is described as having "taken a very prominent part in the advocacy of a uniform system of schools for Manitoba. For two years [he] has been Commissioner of Collegiate Schools for Manitoba." "Sketch," 22. cit. 25 in part for the stable course the early deve10pment of the institution took, and hence for the success in accommodating the needs of the col- leges to the justifiable demands - and limitations - of the state, Andrew Baird, a contemporary of Matheson, seems to imply such a con- clusion when he describes the ArchbishOp as follows: Accustomed in his other duties to deal with large questions in a large way he brought the same wisdom, farsightedness and patience to bear on University matters, and not a little of the recent pepularity of the University has been due to him. There is a fine element of caution in his make-up, and not infrequently in the discussion of University policy and procedures he - Western though he is - has checked the over-impulsiveness of some of the others of us Westerners, and has steered us away from rocks which we had not foreseen in our course.3 The personal experiences of various of the leaders in Eastern colleges were important determiners of the direction they wished to push their colleges, and hence their colleges' position within the University. A decision on the part of Manitoba College, in 1914, to discontinue its Arts component, appears, for example, to have emanated in large part from Andrew Baird's (the acting Principal) reaction to the Ontario college eXperience.38 37Andrew B. Baird, "ArchbishOp Matheson, Chancellor," The Univer- sity of Manitoba anrterly, (December, 1927), p. 35. Similarly, the success of Manitoba College, financial and aca- demic, may well be in large part credited to the fact that its long-time Principal, Grant, had previously acquired an adminis- trative wisdom as Principal of Queen's University. 38.1. A. M. Edwards, Andrew Baird of Manitoba College (Winnipeg: University of Winnipeg Press, 1972), p. 102. "It would appear that he envisioned the College as a strictly theological seminary, similar to Knox College where he received his own training. It is highly probable, too, that the long controversy at Queen's University before the Presbyterian Church decided to allow its College to become a non-sectarian institu- tion had its influence on the Acting Principal . . . ." 26 In an era that was eXperiencing only the first halting and hesitant recognition of state responsibility in the financing of higher education, the economic viability of the private colleges - even within a "university" structure - depended more than anything else on the ability of the college officials to solicit financial support from the general community. And in this talent the early college leaders showed a peculiar genius. Dr. J. M. King, Principal of Manitoba College during the final two decades of the century, was hailed as financial Augustus - finding the college brick and leaving it narble.39 Dr. J. w. Sparling, Principal of Wesley College during the same period, is credited in a similar fashion, but with the addi- tional recognition of having combined successful fund-raising with the development of an intense community loyalty toward and support of the college.40 Both of these qualities proved of immense importance 39Andrew B. Baird, "Dr. King and the Founders of Manitoba College," The University of Manitoba anrterly, (December, 1927), p. 26. 40"The second task was to secure funds to maintain the new insti- tution. This had to be done in two ways; first to gather from the Methodist peOple of the prairie provinces a yearly sum suf- ficient to maintain the institution. Dr. Sparling spared no pains, evaded no toil to gather together year by year, visit by visit, enough money to pay the current expenses of the institu- tion and always succeeded in keeping clear of any deficiency. His visits to the various fields scattered widely over these prairies in the early days was not only a means of getting money, but a source of inspiration to the people and many a young man today owes his first inspiration to secure an educa- tion to the visits of J. W. Sparling to his field." J. H. Riddell, "Reverend Dr. J. W. Sparling," The University of Manitoba Qggrterly, (December, 1927), p. 33. 27 during the first decades of evolution of the University-colleges re- lationship. The ascendancy of the colleges for an extended period of time was in large part due to their holding the first loyalty of the interested segment of the general papulation. Moreover, the maintained economic viability of the colleges very much strengthened their position in the face of a growing sentiment of secularism in the first decade of the next century; a weaker financial base might well have occasioned their effectual demise as a real force within the University. Quite naturally the college leaders were clerics and theolo- gians - as well as theological and classical scholars. In the latter capacity they appear to have been entirely compatible with the strictest university definition of scholarship41 - and are in fact credited with injecting the spirit of scholarship into the fledgling institution. To take the example of the Rev. Dr. Wm. Patrick, Principal of Manitoba College from 1899 to 1911: 41The colleges showed themselves on several occasions to be dedi- cated to the principle of uncompromised academic excellence, even to the extent of occasionally prOposing standards higher than the University as a whole was willing to accept. It is interesting to note a 1957 report of an ad hoc Committee on Failure Rates, which, for the departments examined, "showed no clear difference in the pattern of results between the Ft. Garry Campus and the affiliated colleges, whether considered separately or collectively." Minutes of the Board of Studies, 9 June 1924, p. 237; Minutes of the Arts and Science Studies Committee, 30 November 1942, p. 502; 26 March 1951, p. 7; 16 October 1957, p. 12. 28 During his regime the College continued in its tradition of intense, virile scholarship. That tradition was a part of the College right from the beginning. It could be said that Manitoba College passed on that tradition to the University. The Univer- sity of Manitoba, in spite of its problems concerning site and buildings, never lost its widely known reputation for higher learning which it received from the affiliated colleges. 2 And importantly, the question of scholarly competence has never significantly entered the attacks of even the strongest pr0ponents of secularism in higher education, in the province. THE DENOMINATIONAL STANCES But though liberal, by theological inclination"3 and tolerant,44 by virtue of the closeness and c00peration fostered by the pioneer life, the leaders nonetheless, as leaders of denominations, found areas of basic principle upon which compatible compromise was simply not possible. And it was the nature of these basic and essential 42Edwards, Baird, pp. 61-62. 43"In theology [Grant] is liberal, and while standing firmly by the cardinal doctrines of the faith, he makes little of what he regards as non-essential either in the way of scholastic theo- logy or of denominational peculiarism." - Souvenir Number, p. 137. 44The following brief description of Bishop Machray illustrates the personal qualities of the various leaders that made possible the difficult compromise during the early years of the Univer- sity's life - compromise that mere legislative proclamation could not have effected: "For over thirty years he was Chairman, first of the Protes- tant Section.[of the parallel Manitoba School system of the period), then of the Advisory Board of Education. Through- out the heated disputes over separate schools he retained the confidence and respect of all parties. 'As he once said, "Intolerance is a form of selfishness."'" Murray, "Manitoba's Piece," p. 63. r 29 differences - differences among friends, but men of principle - that defined in large part the carefully qualified constitution of the University. The difficulties to be overcome were . . . [presented] by the difference of Opinion between the Catholics and Protestant points of view as represented by ArchbishOp Taché'and BishOp Machray. The biographer of ArchbishOp Taché distinctly records the consideration of the bill by the Corporation of the College of St. Boniface at a meeting held January 10th, 1877, when it was decided to concur in the request for the creation of a University of Manitoba on condition that all the rights, obligations and privileges of the college as a Catholic institution be maintained and that the college in affiliating with the University preserve its autonomy unimpaired.“S The subsequent development of the University-colleges relation- ship continued to be coloured by the essential differences between Catholics and Protestant, as well as by the peculiar characteristics of the individual leaders in those two camps. The Protestant leaders recognized that, however desirable the bond was between religion and education, the Ontario eXperience demonstrated the patent impossibility of establishing several viable denominational "universities;" as well, the social fragmentation that would accrue from such institutions was an evil to be avoided.46 But living in a community, the ethos of which was becoming increasingly "Protestant" in a general sense, the leaders would tend to see little danger to their denominational interests in an educational system effectively non-denominational. Again, the 451b1d., pp. 65-66. 461nd. p. 62. 30 peculiar backgrounds of the leaders contributed significantly to ac- ceptance of such a scheme. "Machray, Hart and Robertson were of Scottish birth, and were more appreciative of non-sectarianism in Higher Education than might have been eXpected of men so devoted to the missionary enterprises of their churches."47 Such a stance meant that the leaders of the Protestant colleges actually anticipated the subsequent public sentiment for non-denominationalism in the control of higher education; by so doing they were to permit the denominational colleges to accommodate themselves to the inevitable transformation to a secular university, and retain a strong and integral place within it. Again, to have resisted the inevitable might well have courted speedy demise. The Catholic leaders found themselves in a rather more tenuous position. ArchbishOp Taché, who piloted St. Boniface College's en- trance into the union approached the matter from a perspective dif- ferent from that of the Protestant leaders. . . . [he] represented the Quebec tradition in Education. This tradition places religion at the centre of all Education. It may at times be found to accept restrictions to the activities of the Church in matters educational, but it never admits the principle of the right of the state to exclude religion from education. Thus, while St. Boniface College could agree to shift from the Quebec to the English system of examination and to a large extent, 47Ibid., p. 63. 481b1d., p. 62. 31 curriculum, it could not, as could the Protestant denominations, see their definition of religion in education satisfied by a "non- denominational" university. This basic division would necessitate the deve10pment of two distinct forms of affiliation - an increasingly closer academic interdigitation with a teaching university, on the part of the Protestant colleges, and a retention, until very recent years, of an academic and institutional autonomy quite like that de- fined in 1877, on the part of St. Boniface College. Ironically, the person most instrumental in the establishing of the University was not a college figure at all, but rather Alexander Morris, the Lieutenant-Governor of the Province. As one commentator at the University's Diamond Jubilee noted, "seventy-five years ago a lieutenant-governor pulled off some unorthodox lobbying and a univer- “ty was born . . . . The lieutenant-governor appeared to be the only fellow elated enough to feel like passing out cigars."l'9 H18 motives f0? Virtually pushing through the Government a university bill for which no one else showed discernible enthusiasm, are not clear but it does appear that he was inspired by the American notion of the vital role a state university can play in a developing state or province50 \ 49Winnigg Tribune, 28 February 1952. 0Glenn, History, pp. 25-26. The sentiment seems to be expressed in at least one sentence in the Lieutenant-Governor's Speech from the Throne, on January 30th, 1877, introducing the session at which the University bill was to be brought forward: "I regard this measure as one of great importance and as evidence of the rapid progress of the country towards the possession of so many of the advantages which the older provinces of the Dominion enjoy." Baird, "History," p. 21. r s . 32 (even before that deve10pment was really upon it). As an Easterner lumself,.and a politician, he was also anxious that Manitoba not re- peat the debilitating denominational conflicts that had haunted the cflder provinces.51 It is significant that the ideas he pr0posed were lfis own, deriving the benefit of informal conversation with college leaders,52 but never seeking an articulated common position.53 Again, Umrpeculiar form of the union that was effected is in part a result cm’an individual - and the success of that form, which was perhaps the only one feasible - was in large part a result of his unique characteristics as an individual. Though not an educator, he was quite 51Morton, One University, p. 19. ‘52"Dr._Hart too, in a Speech to the University Council said he had had frequent conversations with Governor Merrie about the Bill." Glenn, History, p. 27. 53"'Dr. Bryce in an article on the founding of the University read before the Literary Society of Manitoba College in 1900 said: 'To all of us struggling to make ends meet, and to keep a fair show before the world in our colleges the University idea seemed as unreal as the far-famed spectre of Brocken. Whether the Governor feared the Opposition of the Colleges, or wished a free hand in his project, or was not sure of the feasibility of his plan, no one seems to know. Certain it is, that he never proposed the matter to the ArchbishOp of St. Boniface, the ArchbishOp of Rupert's Land or to myself as representative of Manitoba College, other than by perhaps a casual reference in conversations as to the desirability of such a thing. It was never brought before the College Boards for consideration. But with remarkable persistence Governor Morris kept the matter before his ministers and carried his I" point. Ibid., p. 26. 33 cmnmrsant with the nature, needs and problems of higher education.54 1% combined this sensitivity with a consummate statesmanship,55 that cmfld.forge the delicate bridge of consensus that was the new-born maversity. And in part this Spirit of compromise lies implicit in the federal model .55 5("'He was born in Canada but sent to Scotland for his early edu— cation. Before his course at St. Andrew's was completed he re- turned to Canada and entered McGill. From this University he received degrees in Arts (1849) and Law (1850), being the first graduate in Arts. In time he became a Fellow and later a member of the Governing Board of MCGill. He was also a Trustee of Queen's University for a score of years, his father having taken an active part in the revival of that University." Murray, 22. Cl ., p. 66. 55"The University problem offered a fitting opportunity for his talent for negotiation and his academic interests. His exper- ience in the coalition negotiations enabled him to understand and appreciate the difficulties and the attitude of St. Boniface, and his knowledge of University conditions in Canada and Scottish standards kept clearly before him what was possible and what was essential." Ibid. .56 In the eyes of political pragmatists, the federal system was justified as affording the only viable means of ensuring that higher education would be available to "all denominations and classes . . ." ‘4..J. Spence, University offggnitoba: Historical Notes 1877-1917 (Winnipeg, 1918), p. 58; citing an address of Hon. R. S. Thorton, Minister of Education of Manitoba, made in connection with Moving the Second Reading oi: the University Amendment Act, in the Provincial Legislature, February, 1917. cf. also Canadian Annual Review, 1917, p. 688. 0,, 34 THE ROLE OF RELIGION The religious and moral impulses that underlay the formation of the denominational colleges coloured significantly the role they defined for themselves and hence the priorities implicit in their attitudes toward higher education generally - an important considera- tion during the "era of the Colleges," the period to 1917, when they were the principal determining forces within the institution. Re- gardless, then, of the scholarly notions of the college heads, their tasks were ultimately defined by the denominational bodies which in the first instance decided a college was desirable. When the Presbyterian Church of Canada sent Rev. George Bryce West to the new province of Manitoba in the spring of 1871 to found a college, its intention was that the institution become, primarily, a place of preparation for candidates for the ministry. In the pioneer West, of course, it was recognized that a general education, which prepared individuals for other professions, should have to be given as well . . . 7 That this was an impulse the colleges never lost sight of is demonstrated by the "Charge" delivered by the ArchbishOp to the twenty-sixth provincial synod of the ecclesiastical province of Rupert's Land, in 1950: It is OUR AFFAIR to find and convince and enthuse and educate and send and support sufficient workers for Christ and His Church. 57A. G. Bedford, "History of the Faculties...Theology, Arts and Science and Collegiate," The Uniter. lOOtthnniversary Issue (1971), p. 13. 58The Johgian, 1950, pp. 1-2. Examining the college during the first three decades of this century, another commentator notes: I... '1. a l-- \ ‘- "> :11 35 At the time St. John's College moved to the main campus of the University, the granting of one of the commemorative honorary degrees to an Anglican clergyman symbolized the link the college has felt with the pastoral community: "Rev. Mr. Boyd symbolizes the parish ."59 (It was this previous priest of long and faithful service . link to a community constituency that was to make the question of siting such a difficult one for St. John's College. In the growing complexity of higher education, the college found itself forced to search for its first loyalty - to become an integral component of a university system was not to be compatible with being a geographically isolated college nestled in a community constituency. ) But the mission centre 523 classical school designed by BishOp Anderson (c.1850) in his initial institutionalizing of a secondary school from which the modern St. John's College was in time to grow, was to prove to be another factor allowing the college to accommodate itself to the changing purposes of the university itself. For one of the important factors that began to give the university a unique "Despite increasing enrolment in the arts course, St. John's retained its distinct character as a theological college. From one-third to one-half of the students at St. John's were studying with the view of entering the ministry. Of the seventy-four students attending the College in the academic year 1906-1907, eleven studied theology alone, and twenty-four combined theology studies with their arts courses. A large pr0portion of these students were British or Eastern Canadian by birth. Many of them had come to train for service in Manitoba with financial assistance from the missionary societies . . . . In the late 1920's, despite the reduction of arts instruction, St. John's continued to fulfil her primary function, the training of candidates for the ministry." Fraser,.gp. cit., pp. 43-44, 50. SgfllngipegFree Press, 22 October 1966. ~- C '\ «- 36 function was in essence a "mission" impulse - reSponse to the influx of uneducated "foreign" immigrants that began to come in increasingly great waves toward the end of the nineteenth century. These were peOple for whom the ethos of the colleges - middle class British and French all - was not relevant; something beyond their orientation had to be made available. And this was to be a rather more cosmOpolitan University. But the fact that the colleges had been orienting them- selves toward response to a changing community,6O albeit initially a culturally more simple one, meant again that they would be in a posi- tion to accommodate themselves to the University in this aspect of its function and not be left by the wayside as ethnocentric anachronisms. Regardless, however, of how effectively the denominational col- leges have been able to accommodate themselves to the changing nature and purposes of the University to which they are affiliated, their raisgg d'etre will demand that they differ from it, indeed be apart 1 60To take the example of Wesley College: "Methodism did not assume such strength in the west until the main flood of colonization began to flow in the 1880's. "In 1886, the year after the completing of the C.P.R. had begun to accentuate this influx, the original Wesley charter of 1877 was amended, a Board was elected, and steps were taken to call the College into existence by 1888 as a teaching institution in affiliation with the University of Manitoba." Kirkconnell,_gp. cit., p. 13. A similar impulse prompted the Presbyterian Synod of Manitoba in 1881 to petition the General Assembly to establish a Theology Faculty in Manitoba College. "The Rise of Manitoba College," Souvenir Number, p. 148. 37 from it, in some important aspects. And in this reSpect, two factors met in the denominational institutions of Manitoba - the definition of a religiously-oriented college, on the one hand, and the non- religious definition of the liberal-arts college, on the other. Again, the conditions of affiliation would have to be such as to permit the realization of the goals implicit in these definitions, and at the same time take advantage of the complementary purposes of the univer- sity itself. A teaching sister of St. Mary's Academy, a Catholic women's schoolIggm college, indirectly associated with the University of Manitoba through the agency of a formally affiliated college, defines the over-riding goal of her institution: The central purpose of any Catholic school is to make better Christians as well as to impart intellectual training. Morality is the very soul of good citizenship.61 With this purpose seen as its paramount responsibility, such an institution could not subscribe to the rigid separation of church and state which must characterize a provincial university. Nor can reli- gious and moral education he made non-denominational, purely academic and voluntary (in the mode of programs of Religious Studies which deve10ped during the twentieth century). Instead, the college would insist on the right of making mandatory sectarian instruction and 61Sister Margaret Malloy, "The History or St. Mary's Academy and College and Its Times," unpublished M.Ed. thesis, The University of Manitoba, 1952, p. 142. 38 Observances for those who choose to use the college avenue as their route to University certification. Thus the evolving nature of affilia- tion has always retained provisions that permit the following claim on the part, for example, of St. Boniface College: Special care is given to the study of Christian doctrine. Graded courses are given to all, but in the more advanced classes religious knowledge already acquired is completed by the funda~ mental nogéons of Dogma, Christian Ethics and the evidences of religion. Such an orientation has not been greeted with unanimous acclaim by the full University community. Secularist tendencies were beginning by the turn of the century to close battle lines with the colleges on the question of religion‘pgg‘gg in higher education,63 let alone de- nominational "indoctrination." Indeed, the secularists were developing £1 definition of education and learning quite different in kind from that upon which the denominational colleges were based (although too cxften.seeing the colleges as offering not something valuable and valid ill itself, but rather something, in an inefficient manner, that the University is better equipped to assume.) 6 2 The City of Spires and Turrets," The Manitoban, "St. Boniface: 17 March 1921. 63"A university, college or school should not be expected to pro- vide exclusively or even largely for the teaching of manners, morals and religion. Something must be left to home influences, and with prOper environment in the home and prOper activity on the part of the churches, a non-religious instruction by the state will be foundlggg to interfere with the satisfactory deve10pment of religion, but to yield an intelligent citizenship which is not possible in any other way for the same expenditure of effort and capital." F. F. Wesbrook, "State Responsibility in University Education," reprinted from Science, N.S., Vol. XXVI, (December, 1907), pp. 15-16. 39 The teaching work undertaken by the university can and will reach a far higher stage of efficiency by the elimination of duplication in instruction and by the deve10pment of broad, general, non-religious - please note the term, not irreligious teaching which excludes all tendency to give too early theolo- gical interpretation to new facts or viewpoints as presented to students not yet trained to a point where they are able to draw their own conclusions from the premises presented. These apparently unreconcilable poles of educational philoSOphy became a principal factor not only in the introduction of university teaching (as a secular "Optional" route for those not wishing the denominational college ethos), but also in a growing differentation (in the cases of St. Boniface College, with its Latin PhilosOphy Course, and St. Paul's College (English-speaking Catholics) with its Scholastic PhilosOphy Course) between college teaching and university teaching. It is significant to note, however, the enduring moral emphasis the colleges were able to infuse into the provincial university prOper. The following ruling was passed by the University Council on 16 April 1895: Every non-collegiate candidate at any examination shall, by Certificate from some clergyman or other trustworthy person, Satisfy the Board of Studies of his moral conduct.6S Implicit in this statement is the assumption that the colleges had the right to impose non-academic strictures on the awarding of degrEQB by the provincial university. 4 \ 6 4’Ibid., p. 15. ‘— (555 liinutes of the University Council, 16 April 1895, p. 304. ,- ‘- v. 40 The religious impulse in the colleges tended to permeate all aSpects of the college life, even colouring the extra-curricular with a "dream of a new Jerusalem." As eXpressed by a Manitoba College member: Our motto - the motto of students and professors alike - may be eXpressed in the words of Edwin Hatch: 'Though you may believe that I am but a dreamer of dreams, I seem to see on the far horizon a Christianity which is new but old, which is not old but new; a Christianity in which the moral and spiritual elements will again hold their place, in which men will be bound together by the bond of mutual service, which is the bond of the sons of God; a Christianity which will actually realize the brotherhood of man - the ideal of its first communities.’66 A representative of St. John's College eXpressed much the same orientation in declaring the "ultimate purpose of the college remains unchanged, embodies in the motto 'In Thy light we shall see the light'"67 The colleges seem always to have been questioning their role 11! the:anomalous situation in which they so long found themselves - of tuaing at once seen as theological institutions68 with no place in general education, and as instruments of general education (both for reaSOD of traditional suppositions about what real education must \ 66Rev. Prof. J. Dick Fleming, cited in Manitoba College, ed. by W5 G. Rumball and D. A. MacLennan (Winnipeg, 1921), p. 17. (57 .Winnigg Free Press, 22 October 1966. 6» éBornecommentator on the nascent teaching University voiced what he saw to be ". . . the incompatibility of denominational colleges interests with those of general university development. If denominational colleges are to be an integral part 41 comprise69 and the historical factor that the colleges had for some time been in the public eye as the sources for higher education in the province). Hence they appear willing to demonstrate a flexibility 70 in their self-defining of roles and organization,71 becoming there- by more able to accommodate to the University prOper.72 of the state university, the activities of these individual colleges should be largely limited to theological teaching and, if so desired, to preparation for the university prOper; instruction in line of general culture including the natural sciences, phiIOSOphy, politics and other university subjects, should be provided by the university alone." Wesbrook, 22. cit., p. 14. 69In a more secular, but not non-religious sense, the colleges were seen as fulfilling a basic requisite to full education - the focus on a simultaneous search for scholarship and character. F. W. Kerr, "The College Extension Work," in ManitobgfiCollege, ed. by W. G. Rumball and D. A. Maclennan (Winnipeg, 1921), p. 31. 7 0"Editorial," Johnian, 1950, p. 6. "Indeed, service to the community in which we dwell is what the college emphatically desires to give. And in order to do that it is ready to adapt itself in any way practicable whatever old traditions and ideas are disturbed, whatever considerations of routine and ease are displaced, we offer ourselves for the betterment of the community." "Chairman's Address," Manitoba College Convocation, April 2, 1919, p. 6. 7 1Baird, "Manitoba College," p. 29. 7 2K. W. McArthur, "Wesley College: An Historical Sketch," Jyniversity of Mgpitoba ggarterly, (September, 1927), p. 31. 42 THE COLLEGE PURPOSE With the religious motive as at least the rhetorical rationale73 of college activities, the extra-curricular would be given an orienta- tion quite different from the more secular "social-personal-physical well-roundedness" that came to typify that of the University prOper. lfldle there grew to be a good deal of the athletic rivalry among the uflleges that might be eXpected of geographically proximate institu- tions, it would seem that student life was very much college-oriented, and intrOSpective, at that level. The "University" as such, until it assumed a teaching function, claimed hardly more personal loyalty from a college student than did, as an example, the High School Exami- nation Board74 from a secondary school student. And the college acti- ‘vities most highly lauded during the early years of the University's life were those that could give expression to the mission impulse Pefnlliar to the college's governing denomination. Thus the Y.M.C.A. ‘73 The actual degree to which the moral impulse was realized in the actual college life of the students is unclear. A message from the Warden of St. John's College, delivered in 1936 is not overly positive: "Our devotional life still needs to be strengthened, although I believe that we have made great advances here in the last two or three years; perhaps next year it will be possible for all members of the College, resident and non-resident, to attend our early communions." "Warden's Message," The Johnian, 1936, p. 20. 74Tlm High School Examination Board (discontinued in 1970) was a <2cmmdtxee established by the Provincial Department of Education satnpowered to set the Junior and Senior Matriculation examinations for the Province, and the standards for their marking. In this Capacity it was thus indirectly a certifying agency. In these ‘Z‘ao roles it was not unlike the University as originally formu- 1 ated. 43 looms largely in the Protestant colleges, combatting the threat posed by the release of familial bonds. "Nor is there perhaps any honorable position in life where the youth will be more tempted to neglect his religious duties than within college walls."75 The seriousness of the enterprise is testified to by eXpressions of gratitude to "the city pastors for the help they have given, and for the words of coun- sel and encouragement Spoken in the devotional meetings which they addressed from time to time."76 Extending the concern for spiritual well-being outside its walls, Manitoba College students, as an example, followed the model of their parent church and formed a strong Missionary Society, the stated objectives of which, like those of the Y.M.C.A, beSpoke a sober attitude.77 Thus the emphases peculiar to the colleges were to colour. the full scape of their life - to make them "complete" it! themselves. This, coupled with the geographical isolation in part occasioned by the impulse to serve defined constituencies, delayed, for perhaps as much as half a century, the forging of a strong "University" sensibility on either staff or student. \ 75Souvenir Number, p. 161. 76Ibid., p. 162. 7"The objects of the Society shall be,- (a) The cultivation of the religious lite of its members. (b) The preserving of a high moral and religious life among the students of the College. (c) The supplying of as many 'fields' of 'Divine worship' during the vacation as the funds of the society will permit, and other work which the society may think prOper." I It is interesting to note that even when consolidation of University and colleges on a common site was being considered, the colleges could still view such a venture from a proselytizing perspec- tive. The Archbishop of Rupert's Land delivered the following exhor- tation in 1950 . A comittee is working on the proposal to move to the Fort Garry Campus to which our Synod last November gave approval . 1 . . Meanwhile, it is for each of us to bear witness to the things St. John's stands for, and has gyer stood for, both within the University and outside it. The strong moral-religions of the early colleges had another important implication for University-colleges relationship. The col- lege staff - lay as well as clerical - tended to develop a conception of their function rather different from that which characterized the developing university staff, when teaching by that latter institution was approved. A former student (1910) of Brandon College recalls his instructors as follows: They were able scholars but they were also people of moral Stature and vital Christian faith. They were motivated by a two-fold purpose: first, to give their students a sound mental training; second, to encourage them in the development of up- right character calculated to stand the tests of the years. 9 ¥ 78 "The Archbishop's Message," The Johnian, 1950, p. 5. 79 Dr. Charles G. Stone, cited in A. E. McKenzie, History of Brandon Colle e Inc. (Brandon, 1962), p. 18. It is interesting to note that the Winnipeg Free Press could co“Inemorate the Centenuary of St. John's College (which had by that time been more intimately connected with the University 3y its move to the central campus), with the heading: "100 ears of Christian Teaching." with-'11 Free Press, 22 October 1966. 45 Significantly, the University staff was, in its initial stages, designed to complement the college academic offerings - more precisely, to provide instruction in the scientific and technical disciplines the colleges found they did not have the resources to accommodate. Thus the university instructor would come into contact with the student for only one subject and only during the time he was formally teaching that subject (particularly for the initial years when all students were college students commuting to the University only for a few courses they wished to include in their programs). With this sort of contact, it is not surprising that the university instructors could come to see themselves in the German definition of Professor, and hence not truly close colleagues of their college counterparts, who still very much represented the British collegiate tradition.80(This statement must, however, be tempered with the observation that a num- ber of college staff did move over the years, to university depart- ments; and certainly in those Arts departments common to both Univer- 31ty and colleges, a good deal of co-operation is evidenced.) ‘ 80Rev. John MacKay, Principal of Manitoba College, made the following statement of purpose, in 1921: "[Manitoba College's] Jubilee year came at a time when all the world was asking of its institutions, 'what have you done, what can you do for the New World which is slowly rising from the ruins of the old?‘ Manitoba College now knows that she can answer: 'We have produced, we can produce intelligence and character, and intelligence and character are the two prime requisites of a better, happier world." "The Principal's Message," Rumball, pp. cit., p. 9. The emphasis St. John's College placed on the college's tutorial role led to its advocation of a "University policy [to permit]. the establishment of any denominational colleges or even secular institutions on a central University site." Fraser, 33. cit., citing Canon J. 0. Murray, 1906. 46 A principal factor to prove a demarcation between the Univer- sity teacher and the college teacher was one that would be virtually inevitable in a situation of relatively small81 geographically separa- ted colleges, with each attempting to offer a full general program, at least to the end of the Junior Division. In the early years especially; the individual faculty members had to stretch themselves across several teaching subjects - all at a general level, and to ac- commodate themselves to an onerous timetable. To take the example of Andrew Baird of Manitoba College, who taught at a time ". . . when the professors began at nine o'clock in the morning, and with the exception of an hour for luncheon, taught till three in the afternoon; when it was my lot to teach no less than six languages - Hebrew, Latin, Greek, English, French and German, although happily not all in the same session . . . .32 81Manitoba College, by 1900, had four full professors, and was with this establishment the largest institution in the Univer- sity in terms of student numbers. Wesley College, which began with seven students in 1888, had grown to one hundred and forty- five in 1900. In 1938, when the two institutions joined to- gether as United College, the new institution had an Arts com- ponent of four hundred and fifty students and sixteen professors. Bedford, gp. cit., pp. 14, 19. 82"Rev. Andrew Browning Baird," Rumball, 22. Ci_t_-. P- 16- It is interesting to note the final word in the statement of Professor Baird's appointment to Manitoba College: "In 1891 an important addition was made to the College staff by the appointment of Rev. A. B. Baird, 8.0., as Prof. of Hebrew, etc." 47 Writing elsewhere, Baird notes that even when the two colleges (Manitoba and wesley) came together in 1889 on a less formal co- Operative venture to allow concentration in two areas of the Univer- sity's honours work (Mathematics and PhiIOSOphy), the "classes were small and the Specialists among the teachers very few."83 Even in more recent years, the college faculty faced not dissimilar problems. To take the case of United College, by far the largest of the denomi- national colleges, during the period of the late nineteen-thirties to the mid-nineteen-fifties: For almost a decade after United was formed, Professor Owen carried all the work of Sociology in addition to his regular work in PhilOSOphy (where he had been a one-man Department since Dr. Elliott's death in 1935).34 Another important distinction between University and college was the extensive use, eSpecially in the earlier decades of the University's history, by the latter of clergy as teachers. This ten- dency, a result in part of economic constraints, had at least three important implications. The clergy-teachers had heavy church reSponsi- bilities above and beyond their college work, which would severely cut into the time they might have given to scholarly reading and research.85 83Andrew B. Baird, "Manitoba College," The University of Manitoba anrterly, (September, 1927), p. 30. 8"Souvenir Number, p. 143. 85The following is an excerpt from a commentary on the early years of Manitoba College: "The College has now completed its twenty-second session. The first half of its history was the period of uncertainty, and of many a sleepless night to its Professors. Eleven or twelve 48 COUpled with this lack of time, many of the clergy-teachers had insufficient academic background to instruct in advanced courses. In attempting to accommodate the need for these courses, the colleges were faced again with the Spectre of financial constraint, and com- pelled to engage local clergy, "often on a temporary or part-time basis."86 Such a situation would, of course, mean a significant com- ponent of the faculty did not have scholarly activity as its first interest, or, for that matter, its basic orientation. A third signi- ficant factor, thus brought about, was the cloSe interconnection be- tween the faculties of Theology and Arts within the colleges.87 years of no visible means of support, of inevitable friction, arising from the necessary change from Kildonan to Winnipeg, of an utterly insufficient staff for undertaking the University work, in which it early took part, and of its Professors each weighted down with as much missionary work as an ordinary missionary, to enable them to gain remuneration from the Home Mission Committee . . . . "The Rise of Manitoba College," Ibid., p. 147. Indeed, it would appear that such divided responsibility was the conscious policy of the denominational governing bodies, in the early years. Dr. Thomas Hart, of Manitoba College, was sent West in 1872 to "labor as a missionary in the Province and also to take part with Professor Bryce in the work of the College." Ibid., p. 141. 86Fraser,.9_p. ci ., p. 35. 87Such interconnection is seen, for example, in the initial faculty of St. John's College, which ". . . consisted of Archbishop Machray, teaching ecclesiastical history and mathematics, Dean Grisdale, pastoral theology and English, Canon O'Meara, systematics and philosophy, Canon Matheson, exegesis and classics, Canon Coombes, classics, and ArchbishOp Fortin, French." 49 College instructors could be at once totally responsible to their college for instruction in Theology, and re5ponsible to the central University for their instruction in Arts subjects. Again, the position of the college instructor would be viewed as quite dif- ferent in kind from that of his University counterpart - a situation contributing to the frequent misunderstandings and antagonisms that were to mark the evolution of the college-University relationship. The historical nature of the colleges, and the circumstances of the University's birth, can thus be viewed as principal determiners of the subsequent develOpment of affiliation. The precipitous nature of University development placed the colleges in a position of strength that was to ensure a significant role for them even as the large in- stitution gradually assumed the identity and purposes of a secular state University. Yet the unique functions which the colleges defined as their raison d'étre would themselves compel adjustments in the nature of affiliation. For when the University prOper began increa- singly to assume a nature of its own and become, through its growth, the dominant element within the federal structure, the colleges found themselves seeking accommodations that would permit them to be within the academic mainstream and yet protected in their complementary functions. "St. John's College," The University of Manitoba Quarterly, (September, 1927), p. 21. Even when the academic areas of Arts and Theology became adminis- tratively discrete entities, the overlap tended to persist. In the case of United College, for example, in which the former Manitoba College component was to assume responsibility for Theology, and the former Wesley College component, for Arts, it is casually noted that "A. R. Cragg (Arts Psychology) and David Owen (Arts Phi1080phy) were to assist in the instruction of theo- logical students." Bedford, 23. cit., p. 17. u» l .3. CHAPTER III PROGRESS TOWARD A TEACHING UNIVERSITY Perhaps the greatest pivotal point in the history of the University, and certainly the most contentious and significant for the colleges, was the decision formulated during the last decade of the nineteenth century to make the University of Manitoba a full state university in the North American definition - able to teach and investigate in all subjects defined to be apprOpriate to a teach- ing institution and assigned to that institution by the provincial government. So basic and profound a change this was from the original definition of the university1 - from the perspective particularly of the oldest of the colleges, French Catholic St. Boniface - that the very union was for a time threatened. At the same time, the forces 1Something of the profundity of the change is captured in the words of John Machray, reminiscing in 1927: "The conception of the place, duties and scope of a Univer- sity of today is so transformed from fifty years ago that it is difficult to visualize the past of fifty years ago, when the University was born." John A. Machray, "Reminiscences of the College Era in Uni- versity Development," The University of Manitobayguarterly, December, 1927, p. 17. In the last decade of the nineteenth century, the advent of a teaching University was quite clearly seen by the colleges as the advent of a "new era." Wm. J. Fraser, St. Johgjs College, Winnipeg. 1866-1966: A History of the First Hundred Years of the College (Winnipeg: The Wallingford Press, 1966), p. 41. 50 "(A . , - O 2"? v. Int-in e ., u u.» .5. ‘n " _._‘ ‘ .fl :3 11‘: U ‘AO. ' - “'3“ 1:1: *1.- \ «-.e i: «This F J17; ’i' 51 fighting for a state university were, some of them, questioning the apprOpriateness of denominational colleges having any determining voice in such an institution. SO the battle was one also of redefin- ing the role of the colleges, and, in this, their basic relationship to the university. The dilemma had origin in what might be considered an al- most inevitable financial and organizational difficulty. The colleges, whose instructional facilities were based on private donations and the limited resources that their denominations were able to provide, found they could not sustain, as independent units, the costs of an ever- increasing demand for science instruction. The battle lines were drawn within the University Council on 10 October 1889, when the following resolution was prOposed, without action being taken on it: That it be Resolved: That in the Opinion Of the Council of the University of Manitoba the time has come when teaching should be undertaken by the University, and that a committee be appointed to ascertain the best method of accomplishing this object.? The motion was lost at a meeting of 15 October, to an amend- ment that called for an investigation of the matter, without prior com- mitment on the part of the University Council to the principle of uni- versity teaching.3 The amendment was an obvious deference to the 2Minutes of the University Council, 10 October 1889, p. 262. 3"That without new committing itself to any expression of Opinion as to the desirability of making the University a teaching body at present the Council is of the Opinion that a committee should be appointed to make inquiries and report as to the feasi- bility of taking such action in the near future, and as to the ex- tent to which teaching should be introduced, regard being had to the present position of the Province, the University, and Colleges; and also to inquire and report as to the probable expense and the ways and means for meeting . . ." Minutes of the University Council, 15 October 1889, p. 265. iH-hm the; in Au} 1,_’ aCale 52 well-known sensibilities of the Archbishop of St. Boniface. It was hardly enough, however. For the mere investigation of the possibility of University teaching Opened wide a festering wound that had existed since the founding of the institution. This wound derived from the question of what limitations, if any, had been placed on subsequent deve10pment of the University by the founding bill of 1877. Much of the ambiguity inherent in the controversy derived from what was ap- parently a clerical error. The bill as finally passed appeared in its English and French editions, with slightly different wording,4 each 4The contentious portions of the final English version of the bill were the preamble and section 10, viz.: "Whereas, it is desirable to establish one University for the whole of Manitoba (on the model of the University of London), for the purpose of raising the standard of higher education in the Province, and of enabling all denominations and classes to Obtain academical degrees . 10. There shall be no professorship or other teachership at present in the university; but its functions shall be limited to the examining of candidates for degrees in the several faculties, or for certificates of honor in different branches of knowledge, and to granting of such degrees and certificates, after examination . Statutes of Manitoba, 1877, Chapter 11. ArchbishOp Machray, commenting in 1898 on the amendments made during passage of the bill, had the following to say: ". . . it was found that the preamble and section 5 [10] were amended in Committee of the Whole on February 16th, 1877, as follows: by striking out the words "on the model of the University of London," by changing the number of said section 5 to 10, and by inserting in the first line thereof after the word "teachership" the WOIdB "at present." It was also duly certified that the Bill, n: vr ”iv-E“ I if. ‘U'O-A .d Q... v“ a... ID 53 importantly, being what the respective side wished to see, and chose to believe. Joseph Royal, then Attorney-General and the Minister who presented the bill to the Legislature, was quoted by the weekly Free Press (17 February 1877), as indicating that the bill provided that "hereafter Chairs may be attached and endowed."5 But when the matter was revived in 1889, Royal declared that he had been "misrepresented if not misunderstood by the reporter." He made the interesting as so amended, was read a third time and passed on the 20th day of February, 1877, and that the original engrossed copy of the said Bill assented to by the Lieutenant-Governor contained these amendments. But in the published English edition of the Statutes of that year "on the model of the University of London" were erroneously retained, although the other amendment inserting the words "at present" was correctly made. There seems to have been no original Act in the French language, it being the custom always to have the French edition always translated from the English, but in the French edition of the Statutes of that year not only do the words appear 'sur le plan de l'universite de London' but the French for "at present" was not introduced. It is difficult to account for this apparent blundering." Robert Machray, "History of the University of Manitoba," in Canada: an encyc10pedia of the country, ed. by J. Castell Hapkins, 1898, IV, 256-7. Machray does, however, add the following qualifying comment: "The proceedings of the Legislature were, however, so con- ducted at the time that there is nothing remarkable in an amend- ment not being noticed." Ibid., p. 257. A statement of the clerk of the Legislative Assembly appears as Appendix I. 511.1. 54 comment that an action on the part of a Committee-of-the-Whole, to include the phrase "at present" would not have been constitutional, being a material alteration. "I can safely assert that such was the importance attached to the measure that it seems well nigh impossible that such a material modification should have been made unchallenged or unnoticed by any of those who, in the framing of the bill, have "6 evinced a lively interest. In the same letter, his understanding of the intent of the original bill is stated emphatically: . . . 1 am most positive in stating that, to my knowledge, it was never understood at that time by any one interested in the passage of the measure that the University was ever to become at any period of its existence, a teaching body, and in order that no possible misunderstanding should exist, it was eXpressly recited in the preamble of the bill that the projected university was organized on the model of the London University, which is a degree- conferring body, and that alone. ‘ Royal's statement gave heavy weight to Taché's argument of betrayal, which, transmitted to the federal government,7 brought political sanc- 8 tion to his support. In his reaction to the suggestion of University teaching, Taché indicated succinctly his vision of the institution that H he and St. Boniface College had agreed to join. To him the "at present phrase stood diametrically Opposed to the guarantee that he felt had 6Royal to Taché, 30 November 1889, Canada: Sessional Papers, 62 Victoria, No. 48, 1899, pp. 13-14. A statutory declamation respecting Royal's alleged comment appears as Appendix II. 7Taché to Thompson, August 1889, Canada: Sessional Papers, 62 Victoria, No. 48, 1899, pp. 7-9. 8See below, p. 60. 55 been offered to the Catholic college by the prOpounders of the Act: . . we were never consenting parties to have those words in the Act. It was well known at that time that we, the repre- sentatives of St. Boniface College and Of the Catholic portion Of the University in the organization, could not have joined the other colleges in a teaching university.9 His reason for Opposition is simple and not one shared by the leaders of the Protestant colleges, who had no difficulty endorsing a pro- posal for a teaching institution. we made known to the other colleges our insUperable Objec- tion to such prOposed scheme, as it was impossible for us to send the pupils of our colleges to be taught by professors over whose teaching we had no control. This position set out the basic reality for subsequent affiliation: the Catholic colleges would have to be accommodated on this issue or they could not in principle remain in the union. And so great was the strength of the "one university" impulse that such accommo- dation was made. Basing an argument on the right Of the college to enjoy the sanctity of guarantees accepted in good faith, on the rights that St. Boniface College should be able to eXpect in the light of its contribution to a place in Manitoba's educational his- tory, and on the desirability of maintaining an organic unity, in higher education, that would prevent deve10pment at the eXpense of its parts, Tache eXpressed a position that was to define in large measure the rationale Of subsequent affiliation within a deve10ping state university - the protection Of minority rights and the res- pecting of religiously-based educational philosophies: 9Ibid., p. 8. 10 Ibid. 56 . I do not wish to ask for any Special privilege or favour for the St. Boniface College. But what I desire and ‘what I would suggest is that, in the patent granting to the ‘University the lands allowed by the statutes, some clause or ‘words may be inserted affording a protection to any particu- lar college connected with the university and constituting a part thereof, whose rights and position may be affected or interfered with, in the event of the said university altering its constitution or modifying its original plan. The protec- tion asked for today by St. Boniface College will be for the benefit of any of the colleges finding themselves in parallel circumstances. In a few months or a few years, some one of the colleges Inay have interests conflicting with the majority and claim the benefit of the same protecting clause. This would also act as a warning to the university as a body that the right and just claims of any one Of its constituent parts should not be in- fringed upon; and it would tend to promote and preserve between the different denominational colleges, the harmony and good relations which have so far been prevailing.11 Taché is in effect Offering his interpretation of the course of future deve10pment the University must follow. The peculiar man- date, indeed, the very raison d'3tre of the institution demanded, in llis eyes, that its basic constitutional provisions must remain u“altered. This was not to be a typical state institution, adjusting in £31mple accordance with the circumstances of the society supporting it- Rather, it was an institution purposely designed to afford af- £111ation of corporately-autonomous colleges representing ethnic and religious communities within the province's mosaic, and an institu- tiot‘ in which such association was considered as much a right as a privilege. \ llIbid. 57 What Tache’ seems in part to be suggesting is that, with the size and scape Of higher education growing in accordance with an ever- increasmg provincial demand, the rather informal entente of friends and gentlemen that had to date guided the University Council on the basis Of unwritten understandings of what was desirable and tolerable, was no longer a secure enough protection.12 With increased political intervention, the affiliated colleges needed formal statutory safe- guards. The chauge in atmosphere and the feeling of vulnerability are expressed in a second letter to the Federal Minister of Justice: The new institution [referring to the creation of the Univer- sity in 1872] received congratulations from many distinguished per- sonages, it was considered as a marvel Of liberality and goodwill on the part of all those who had contributed to its establishment. Our dear young university has already done a great deal Of good, and has been a source of enjoyment to its members. I have no doubt bat it would have continued being so, if the principle Of its con- Stitution had been preserved. Unfortunately the equilibrium is disturbed; the classical affiliated colleges have lost the security \ ’lzThe change in atmosphere on the Council is reflected in Tact"3's parting address, on the occasion of his retirement from the C°unCil, on 6 September 1891: "The share I have taken in the establishment and development of the University, the pleasant intercourse which has characterized my relations with its members had been to me a source Of real en- jo)Vtuent. Nevertheless in ceasing to be a member of the Council, Perhaps for ever, I think I may take the liberty to say that our meetings had lost for me most Of their former features. "The course adopted with regard to Elementary Education, the inJury contemplated against our classical colleges to bring the “hole under the control Of the Government; all that seems so matlifestly unjust that I cannot meet the promoters and supporters °f such schemes with the same pleasure as I have hitherto done. "Coercive unification is nothing to me but repulsion and I have 8° felt for the last two years." Minutes or the University Council, 8 October, 1891, pp. 456-7. 58 of their autonomy. In the near future their own teaching may be disregarded. The council Of the university itself has prepared the loss Of its own control; political influences are getting hold of the result of our work and sacrifices for the twelve last years. Nobody knows what can be eXpected within the next months or after.13 And without the protection Of the old autonomy, wherein the decisions of the Council could not affect the inner workings of the colleges, a minority position on the Council - which, of course, any individual college had, could become a real danger, without effective statutory safeguards. Something of this feeling of helplessness is eXpressed by Tacne’ when he speaks Of the passage of the two motions indicated inmediate 1y below: . . the Roman Catholics being the minority on the council could do nothing but to register their votes against the measure.14 In the immediate battle, however, Tache"s position was not to prevail. At a special meeting of the University Council of 12 November 1889, the Committee appointed to consider the question of University teaching reported as follows: Your Committee first decided that it was desirable that chairs be at once established in the University in the following subjects: (A) Natural Science (B) Honor Mathematics (C) Honor Modern Languages . ' . . that in the event of a teaching faculty being constituted by t e University, embracing certain definite subjects, no transfer shall be made to it Of other subjects taught by the colleges ex- cept by a three- fourths vote Of the members Of the University \ 13Taché to Thompson, _O_p. cit. 1l‘Ibid. 59 Council present and voting taken at a special meeting called for the consideration of such transfer, of which at least one month's notice shall be given . 1 The first motion passed on division with the stipulation that clue courses under (B) and (C) might be taught by the University at .any'level.16 The second motion passed on division at an adjourned special meeting held on 15 November, with one amendment; the words "run addition" replaced "no transfer". Significant in these motions is the concept of the University, as a state-supported institution, (xanIementing the work Of the colleges, handling those subject areas for which the colleges quite simply did not have the resources. There is not, however, the notion Of the University duplicating, or competing ‘with, the work Of the colleges. The second motion indicates clearly that the colleges wished to retain the power Of determination on pre- Cisely what work the University undertook; it was not to be a self- dfitermining academic entity. The amendments to the motions are them- 8&1ve3 significant. The first, permitting work in the subjects to be <>tfered by the University to cover all levels, suggests the inten- tioTl of making that body fully responsible for those areas delegated t0 it, defining, therefore, a University-college relationship‘in which the division Of responsibility is in subject areas rather than 1“ levels Of subjects (although subsequent deve10pment does, for a timEB, define the college role as Junior Division and the University as senior Division.)17 The second amendment, respecting the change ___~___ 15Minutes of tag University Council, 12 November 1889, pp. 269, 273. 161b1d., p. 273. 17See below, pp. 158-159. 60 <>f "no addition" from "no transfer" would appear to assume impli- cxitly the subsequent deve10pment of the University into areas as yet ruot handled by any of the institutions of higher learning in the province. The initial wording, on the other hand, might be seen as presupposing that any expansion Of tertiary work would be initiated 111 the colleges. At the federal level, however, Taché's pleas had struck a sympathetic cord in the Minister of Justice (as they might well have beeriexpected to, in this period of racial and religious tension). Not coincidentally, the University's pressing for the right to teach ‘was coinciding with the federal government's negotiating a very large land grant in support of the University.18 The federal government inJected into the draft land grant patent a clause that would have the (affect of freezing the University's constitution in the form inter- Preted by Tache’: \ 18Whereas in and by chapter 47 Of the Revised Statutes of (lanada entitled "An Act reSpecting the province Of Manitoba" it: is amongst other things in effect enacted that an allotment <>t land not exceeding one hundred and fifty thousand acres of fair average quality, shall be selected by the Dominion Govern- ment and granted as an endowment to the University of Manitoba, ‘1 body corporate and politic, under the provisions Of the Con- 8Olidated Statutes or Manitoba, chapter sixty-three, for its maintenance as a university capable Of giving proper training it! the higher branches Of education, and to be held in trust for timat purpose, upon some basis or scheme to be framed by the University and approved by the Dominion Government. Canada: Sessional Papers, 62 Victoria, NO. 48, 1899, p. 4. 61 Provided always that if at any time hereafter the said university shall be dissolved or shall cease to exercise its functions as a university, or if at any time hereafter the said university shall cease tO be constituted as provided by its present Act Of incorporation, chapter sixty-three of the Consoli- dated Statutes Of Manitoba, then and in such case any and all of the said land which may remain unsold shall revert to and be- come revested in us and our successors as our and their former state therein; and all funds in the hands of the said university, their successors and assigns, the proceeds of or which in any way result from the said lease or other diSposal of said lands shall be immediately paid over to us our successors or assigns. In the face of this deadlock, the Council found itself un- happily compelled formally to articulate, in contradiction to the venerable ArchbishOp, its interpretation of the original constitution by vfluch the colleges had entered union: Now it is resolved that this counc1l having compared the statements of the ArchbishOp of St. Boniface relating to the original constitution or the Act establishing and incorporating the University of the Province of Manitoba with the certificate (at the clerk or the legislative Assembly and custodian of the Statutes of the province of Manitoba [Appendix I] and the speech <3f the Hon. M. Royal [Appendix 2] cannot but come to the conclu- Sion that the Act Of the Legislature incorporating the University 13f Manitoba contemplated the establishment of chairs and professor- Blrips in said University in the course Of time and did not provide that it should be founded on the model of the University of London emu: that this fact appears to have been known to the Hon. Joseph Royal and are nominated [sic] by him on the floor of the Legis- 14Iture Of this province at this time. The resolution, passed in division, was then used as a preface to a request to the federal government that the Crown land grant patefllt be issued without the restrictive conditions indicated above.21 \ 191mm. 2")Minutes of the University Council, 22 November 1889, pp. 304-305. 2111314., p. 306. 62 The reason the Council was willing to take such a divisive stand on the issue is clarified somewhat by a letter from the Secre- tary Of the University's Land Committee, directed to the federal Minister Of the Interior. The dilemma of the Council was a real one. As suggested previously, it had come to the point of realizing that governmental financial assistance would be necessary if the Univer- sity were to meet its expanding responsibilities. But quite naturally the government was reluctant to commit money to an institution, the constitution of which would not present any real measure of external direction. Quite simply, the government wished more of a hand in calling the tune; hence another stalemate: 1. The provincial government will not assist the institu- tion until it is decided to remodel it and make it a teaching bOdy, and 2. Until the lands are finally patented to the University, the friends Of the institution do not care to urge any reform if so doing might have the effect of stirring up any section to attempt to interfere with or divide the land grant. 2 But Taché's fears of state intervention in the previous auto- n°my or the colleges were not without foundation. His concern was 8hated by a minority on the Council who wished to ensure that the Pro"incial Legislature would not have the power to alter the conditions \ Vi 22m“ to Dewdney, 16 July 1889, M: Sessional Papers, 62 ctoria, NO. as, 1899, p. 6. th Wade, a governmental appointee to the Council, had initiated e PrOposal to have the Act amended to permit University teaching. (W W. J. Spence, University of Manitoba; Historical Notes 1877-1917. inrupeg, 1918), p. 23. 63 of the Land Grant by altering the form of the University Act itself. His interpretation of what the majority of the Council did pass does I ring Of the insecurity tO which Tache had been alluding: "By the terms of the form of the proposed patent adopted by the majority, the legislature of the province of Manitoba would, by Acts amending the University Act, have power to change the purposes of the grant and to apply it to purposes other than those originally in- tended." Certainly the Provincial Government was taking an unprecedented pro- prietorial interest in the University, and clearly enunciating its 24 Wish to hold and exercise an increased directional role. 23Archibald to Sifton, 4 February 1898, Canada: Sessional Pagers, 62 Victoria, No. 48, 1899, p. 28. 24The following is an excerpt from a letter directed by the Attorney-General of the Province to the federal Minister of the In terior: "It is the portion of said quoted clause which prohibits a change in the constitution Of the said university, tO which I am instructed to Object. The grant Of 150,000 acres Of the University of Manitoba was part of the settlement made between this government and the Dominion Government in 1888. We there- for consider that the Dominion Government have no right to re- 8trict the powers of this legislature in dealing with a body 1like the University of Manitoba, which is entirely the creation of our own legislature. I urge this point strongly as a matter of right, and I would also point out that in the interest of the university it would be a most unfortunate provision; the l’T-‘actical effect of such a restriction must be to prevent any change whatever in the university, no matter how clearly ex- Perience might show the necessity of some change." 62 Martin to Dewdney, 2 January 1890, Canada: Sessional Papers, Victoria, NO. 48, 1899, pp. 14-15. 64 The minority report gave a hint of yet another long-term im- plication, for the colleges, or greater governmental involvement in the supporting or the University. The report eXpressed strong re- servations about giving "the right in the university to mortgage or pledge those lands for the purpose or raismg money at interest to a body [i.e., the University Council] varying so greatly in divers interest, and so likely to vary in its constitution . ."25 For the first time the university government is publicly criticised as not being appropriate to a provincial univerSity enjoying public resources - the Council is viewed as a body of limited power, one representing essentially autonomous constituencies more than it did a principally "theoretical" umbrella institution, and one answerable to those quite idiosyncratic parents. These questions raised by the land grant were not to be fully answered until 1917, but the warnings At a later date the point Of contention was to arise, as to Whether the land grant was made to the province, to assist in deV810pment of its post-secondary educational enterprise, or to the UniVersity per se (i.e., to the Old Council of college representatives), to aSsist in its self-defined development. The question was, Of course, a c‘al'ltral one, and the excerpt above holds little room for doubt con- cerning the Provincial Government's interpretation. a The fact that the University Land Grant comprised part of an tgreetnent between the federal and provincial governments in answer 'b the latter's "long standing claim . . . against the Dominion for raifiter terms'" would suggest that it was indeed a provincial grant er than one belonging to the University as a corporation. Manitoba Free Press, 18 February 1911. 25Arcnibald to Sifton, 22. cit. 65 I . . . of Tache that the Council was, in initiating governmental involve- ment, initiating also its own demise, and that also of the tradi- ticnnal structure Of the federal university, proved prOphetic.26 But in the last decade of the nineteenth century, an increased govmarnmental interest in the University was not immediately followed by i! willingness to provide the substantial capital and Operating OUtfilay that even a modest university establishment would entail. AI'<:hbishOp Matheson, who was very much in the centre of events, im- Puted the hesitation to financial inability, rather than to any un- ‘WiJJlingness on principle; ". . . our State did not find itself able "27 t0 <10 what I am sure it would like for our Provincial University. F0? whatever motive, the Government prevaricated on the Council's reQUest: "Under all the circumstances the course which seems prOper \ 26The following motion passed at a meeting of the Council on 13 May 1890, might be seen to reflect a growing uncertainty about the future, even as the Protestant colleges are volun- tarily initiating fundamental change: "That, recognizing that it is of great importance in the interest of the colleges which have hitherto had such a close relation to higher education, that the question of the division of such education for the future between the University and colleges, in the event of education by the University being established, the Council appoints a committee to confer with the Government on the question with a view to eliciting its views." Minutes Of the University Council, 13 May 1890, p. 342. 27S. P. Matheson, "Convocation Address," 3.8 May 1927, The Universityiof Manitoba Quarterly, (September, 1927), p. 7. 66 to the Government is to delay any action in the matter for another year in order that plenty of time may be given for consideration."28 This consideration was to stretch to 1892, at which time legislation was passed Of an enabling nature, permitting University instruction in the three specified areas originally requested by the Council,29 but not committing the government to actual financial support. Forced by governmental procrastination to answer by their Wu means the difficulties which originally prompted their request to the Government, the colleges, through the Council, devised a telllporary expedient, which seems to define what they envisioned the I'01s: or the prOposed University teaching component to be. The ex- Pedient was prompted by a report to the University Council meeting of 5 June 1890 from the examiners in natural seience, a group or three, One of whom was the prestigious George Bryce of Manitoba College, The rePort is useful also in delineating the problems facing the existing federal structure: \ A 28From a letter, dated 19 March 1890, from Joseph Martin, CttOrney-General of Manitoba, cited in Minutes of tile University W, 19 March 1890, p. 341. M 29"11. Section 16 Of the said Act [the University Act of anitoba] is hereby repeated and the following substituted therefor: 16. The University shall have power and authority to give 8Inch instruction and teaching in the several faculties and dif- ferent: branches or knowledge as may from time to time be directed by the Council of the University . . . ." mod This amendment act also erased the troublesom phrase "on the Si e; 0r the University Of London" from the preamble of the Univer- ty Act. Statutes of Manitoba, 1892, Chapter 49. 67 The natural science examiners beg leave to report that they have found it very difficult to carry on the work laid down in the natural science courses with the imperfect appli- ances at their disposal. During the past year, Quantitative Chemical Analysis has for the first time been taught, and many difficulties have been encountered in accomplishing this. The examinations also have been conducted with very serious draw- backs. The examiners Or the seven honor students in minerology took place at four different points, viz: St. John's College, Manitoba College, Wesley College, and the examination Hall. The same was the case with Qualitative Chemical Analysis, and with the new subject of Quantitative Analysis. This necessitates the division of the examiners, and the undersigned all feel it to be too much responsibility to throw on the separate examiners to have to supervise their own students in a competition with others. The undersigned are unanimously of Opinion that the only way to overcome these difficulties is to have united action, and that the University should take some steps for next session in the matter. The undersigned are willing with the consent of the colleges to which they severally belong to combine in teaching the natural science course, should the University supply the facilities needed in addition to whagomay be supplied for the several college laboratories . . . . When the government finally proposed what in its Opinion were a“-‘-'-=eptab1e terms for University teaching, it became clear that the 8‘3Vernment and the colleges shared quite different visions. It would Seem that the colleges would have liked to have seen the University staff closely interdigitated with the college programs, responsible, thrOugh committees or examiners to the college-dominated Council, and carrying the courses too expensive for the colleges, as well as \ 3("Minutes of the University Council, 5 June 1890, pp. 350-1. The co-signers were: George Bryce, Manitoba College G. J. Land, Wesley College E. B. Kenrick, St. John's College 2e prOposal was approved at a Council meeting or 1 June 1900, on the Pusollllnendation of Dr. Sparling, Principal of Wesley College, "as a o f ely temporary arrangement and pending full and careful discussion timghe chairs to be instituted, . . . it being understood that their fan 8hall only partially be given to the University, as may be ar- ged by the College . . . ." lb \13- . 1 June 1900, p. 133. 68 tlaose courses "apprOpriate" to a univerSity professoriate.31 Except :111 the eyes or St. Boniface College, such a construct could be seen as a logical extension Of the existing federal system, and not a departure in kind from it. The Government, however, envisioned a professoriate responsible ultimately to the Government itself, and not to the Council.32 As well, it, rather than the colleges, would become the locus of deve10pment; with the Government controlling the Lilnd Grant, as it prOposed to do, over-all University development couild be made to follow its envisioned priorities.33 Though not themselves directly alluded to in the prOposed bill, the colleges would, if disposition or the Land Grant were not under their effectual 31Morton makes the following Observation: "Some Manitoba and St. John's men believed that certain sub- jects ought to be taught by a university professoriate, and in this they were only following the traditions of Cambridge and Of university College, Toronto." Morton, 22. cit., p. 43. 32W the- University Council, 8 October 1891, pp. 456-7. 33Two or the sections in the Government memorandum on the Univer- 81ty Act are as follows: "(2nd) The Lieutenant-Governor in Council, i.e., the Cabinet may appoint and provide for the remuneration Of such Professors and assistant protessors, to hold Office during pleasure as may be deemed desirable to appoint in the departments Of Mathematics and Astronomy, the Natural Sciences and MOdern Languages, and it shall not be competent for the Council to abolisn any Of the professorships established in the departments. . 69 <:<)ntrol (i.e., under the Council), have their role and power gradually slirink in relative import, as the "University" grew in an arena Izargely divorced from them. Rather fortunately, perhaps, for the Siibsequent develOpment or the UniverSity, the Government was not able tr) persuade the Legislature to support the costs involved in the esstablishment or chairs.34 With that essential part of the enacted bill not able to be executed,35 the Council was able to persuade the Government to rescind the whole - with a return, thereby, to the or iginal deadlock . (5th) The University Council shall release and assign to the Government Or the University Land Grant upon an express trust to administer the same for the purposes Of the University only, and no portion or any fund to be derived at any time from the Lieutenant Governor to be diverted to any other purpose and until a fund arises the expenditure or the Government under this Act tO be charged up against the Lieutenant Governor." The Council balked at both Of these provisions, requesting the insertion Of the phrase "with the concurrence Of the University Council" after the word "Council" in the first line or the second Clause, and asking for an Opportunity to consider more closely the implications or the fifth clause. As a foreshadowing Of things to come, the Government also sug- gested a relative decrease in the representation Of the incorporated COIIeges on the Council and a relative increase, to parity, with the individual colleges, or the governmental representatives. Ibid., 3 March 1893, pp. 135-138. 3“Statutes of Manitoba, 1893, Chapter 33. 351bid., 7 March 1895, pp. 289-90. Statutes Of Manitoba, 1897, Chapter 35. 70 UNIVERSITY TEACHING The assumption of teaching by the University passed through, in (effect, two stages of principle. In the years following 1892, the: University component eXpanded under a delimiting qualification: . the university should assume reSponsibility for sub- .jects which had no denominational connotations and in which the (colleges found it a burden to provide instruction. At the same tzime, it left to the colleges those subjects in which as denomi- Iiational and liberal arts colleges they had a Special interest, and a sufficient number of subjects to justify the colleges in tnaintaining instruction in arts.36 During the first decade of the century, however, the question of Principle shifted to the prOposition that the University be permitted t10 encompass all subjects within its secular Sphere.37 Even so, a ‘19 facto division Of subjects existed until 1920, with the Univer- sity's leaving within the college preserve the teaching of philOSOphy. 36Morton, One University, p. 71. 37Ibid. Clearly the question Of division of courses between colleges and University was one in which the Protestant colleges' posi- tion was misunderstood. Dr. Halpenny, in 1911, saw the colleges as suggesting, on the University of Toronto model, that the Uni- versity courses specified to be taught by the colleges would be severed legally and permanently from the jurisdiction of the University teaching faculty. This envisioned circumscription of the scOpe of University activity would quite naturally pro- voke the doctor's strong statement of principle: "I submit it is wrong in principle for the state to resign to religious bodies any field of study in advanced learning, be it small or great." Manitoba Free Press, 20 February 1911. 71 DJEith the final incorporation of this subject, and hence the full estaectrum Of courses, the University ended what had been a gradually diminishing relationship of academic complementation, and entered (3116 that was fully one of competition.38 Before 1920, however, the unresolved question of principle as t:c> the apprOpriate division Of subjects between colleges and Univer- sity had led to an initial de facto assumption by the University Of ‘rwesponsibility primarily for science instruction; thus, by 1904, it was in fact in control of the sciences (with the exception Of St. Boniface College's retention Of the Junior Division natural sciences, in an effort to prevent the materialistic break between sciences and humanities).39 Yet despite the Opposition of St. Boniface College, Clue University Council maintained its support for the concept Of a teaching University - but one the evolution Of which the presently Constituted (and College denominated) Council would supervise."0 38Fraser,_g_p. cit., p. 47. 39Ibid., p. 40; Morton, One University, p. 65. 40In 1889 the Council passed, in division a motion containing the following statement of principle: "The University shall have power and authority to give such instruction and teaching in the several faculties and different branches Of knowledge as may from time to time be decided by the Council Of the University . . . ." The close guarantee Of Council (and college) control Of the University evolutions is illustrated by the following quali- fication clause: "The subjects upon which such instruction and teaching are to be given by the University shall be determined by a three-fourths majority of those present and voting 72 Two actions of the Council during the years of most profound debate on the future of the University indicate a gradual firming of commit- me nt to a fully-develOped teaching institution. In 1907, the Council passed a prOposed addition to a revised University Act, as put for- ward by Canon Murray of St. John's College: Whereas the above-mentioned chairs or lectureships have been recommended not as the only ones needed but merely as those for which the immediate need is most urgent, we further recommend that the Council should steadily aim at this University providing in- struction in all the higher branches of Education.4 The most explicit statement of principle came in 1910, however, during the Council's consideration of a Commission report of that year. At that time, it rejected the position of St. Boniface College and endorsed one more typical of the state-University prOponents. In endorsing the latter, the Council passed perhaps its most significant Statement: "That in the Opinion Of this committee there be no limi— tation to the power of the University to give instruction in all branches of higher education . . . ."42 That the Council was pre- Pared at this time to pronounce a final policy statement is evidenced by its simultaneous defeating of a motion to consider the question fut ther .43 thereon at a meeting Of the Council called for the purpose Of considering such matters." Minutes of the Uniyersity Council, 15 November 1889, p. 281. 41Ibid., 10 January 1907, p. 256; 18 January 1907, pp. 257-258. 4211151., 3 November 1910, pp. 139-140; 24 November 1910, pp. 143-144. 43M” 24 November 1910, pp. 143-144. 73 PROFESSIONAL STUDIES The inception of University teaching was complemented by another ‘teerasiency that was to modify the nature Of the larger institution and ‘ttiee ‘rOle of the colleges within it. . . when the Canadian west 'materialized' - too much alas! in one sense - the impulse for an institution of higher learning inevitably arose from the more utilitarian or professional side. The seeds of the ultimate eclipse of college power was inherent it! ‘the initial constitution of the University. Though born in a period itl svhich the arts colleges undeniably dominated the higher education of the colleges, the University had within its charter provision for even- tua], affiliation of professional education;“"5 as professional schools were gradually admitted into affiliation,"6 their representation on the University Council would move the perSpective of that body to one far ¥ ‘iéFleney,.gp. cit., p. 70. lisMorton implies that the including of such provision would have derived from the University vision of Alexander Morris, rather than from that Of the colleges. He suggests that the college leaders, at the very inception of the University, "could not contemplate without some misgivings the extension of the curri- culum beyond the teaching of languages and mathematics." Morton, One University, p. 21. ‘iéh College of Medicine was established in 1883, and brought into affiliation with the University for the purpose Of affording University degrees; the college itself was supported and control- led by the medical profession. Legal education which had pre- viously comprised only occasional addresses by practising lawyers to law students, became more formalized with establishment Of an affiliated College Of Law in 1884. (31enn,‘gp. ci ., p. 36; Murray, "Manitoba's Place," p. 74. 74 incore receptive to the sentiment supporting the concept of a state university. And the central principle directing deve10pment Of the iristitution - that Of "one University" - would demand that the cliaracter of the University accommodate itself to the needs of growing sczientific, technological and professional faculties. All such ac- ccnnmodation would move the University away from the institutional Humdel of the original "community of colleges," and the place and role 01? the colleges originally held within the larger institution. Though the college leaders had not shown an enthusiasm for ex- tension of the University curriculum per se,47 the actual advent of re=presentation on the Council Of not only the Medical College but also of? the profession itself, as institutionalized in the College Of Physi- Ciiins and Surgeons, stirred no apparent concern over the change in 47The attitude is an ambiguous one. For while the college leaders did not appear to support an extension Of university curriculum, and maintained such Opposition as an abstract academic principle, they at the same time entertained social principles which seemed to suggest acquiescence to the admission Of professional studies. One leader, considering pharmacy, Observes: "The dangers from careless and ignorant diSpensation Of drugs is a sufficient reason for the university listening to the requests of the members of this association and making adequate preparation for the teaching required.” George Bryce, "A Modern University," The President's Inaugural Addresg to the Manitoba College Literary Society, 24 October 1880 (Winnipeg, 1890), p. 3. 75 l>Eilance of the governing body.48 What is perhaps equally significant is; the attitude diSplayed by the colleges in seeing the professional s<:hool staff as interdigitating more with their professions than with euny "academia" inhabited by the arts colleges staff. The attitude is iJllustrated by a contemporary college leader's perSpective on subse- cuaent professional education: If the university building to be erected should afford accommo- dation, a band of capable professors might, after the manner of tnedicine, be organized from the members of the legal profession, inhich under university guidance might be of immense service to students studying law.4 That the Medical College representatives shared little in com- lnomi with those Of the arts colleges seems indicated by a bitter com- memit by Father Cherrier Of St. Boniface College: ". . . I am perfectly frwee to question the motives which prompted Dr. Devine's action, and 1118 right to appear under the garb Of one individual medical represen- tative to give vent to views on educational matters, in which the medi- cal faculty of Manitoba, except perhaps Dr. Chown, does not seem to be much interested, still less concerned."50 And the autonomy given to 48Minutes of the University Council, 6 April 1886, pp. 58-63. The prOportion of medical representation was increased again in 1893, with provision for "four representatives to be selected by the College of Physicians and Surgeons and three representatives Of the Manitoba Medical College." Statutes of Manitoba, 1893, Cap. 35. 49Bryce,_gp. cit. SOManitoba Free Press, 10 December 1910. 76 clie Medical College and the College Of Physicians and Surgeons in sealecting their representatives,51 made possible the two bodies' ‘reapresenting a larger lay perSpective. Hence, "it was the represen- taitives on the Council of this self-supporting and similarly indepen- deant lay college, who urged most insistently the modification of the Original scheme."52 As well as a change in perSpective, the newly affiliated col- IEge was soon to make very practical demands on the University, be- yond the original limited responsibility of degree conferral. The col lege wished the University to assume a greater role in provision of pre-medical training - particularly in the eXpensive biological anti physical sciences. And it was the pressure for additional work if! the sciences that prompted the arts colleges themselves to request a University teaching component.53 Morton signals also as important the develOpment, in attempting to define an apprOpriate relationship With the government controlled and supported Agricultural College, of a new model of relationship with the University - a model which the Medical College was soon to adOpt. In incorporating that college for a time, as an integral University faculty, rather than a self-contained college affiliated only for degree granting and examination purposes, the University had altered its basic nature. "The college system Of the early days Of the university was challenged by . . . a new prin- ciple of organization."54 51Statutes of Manitoba, 1893, Cap. 35. 52F1eney,_g_p. cit. 53 54 Cf- Pp. 66-67. Morton, One University, p. 70. CHAPTER 1V DEFINING THE UNIVERSITY STRUCTURE Sparked by the question of University teaching, and by a growing public appreciation of the role tertiary education could and should play in a state educational system, a controversy of major pro- porrtions raged during the first two decades of the Twentieth Century, cetitering on the nature and role of the University. The place and ftunction Of the denominational colleges remained very close to the eye of the storm. A focus of the various viewpoints taken reSpecting the colleges 318 to be found in the Report Of a Royal Commission on the University 013 Manitoba, which was struck in 1907 and reported in 1910. Among tfue directives given the Commission were two that requested considera- tli<3n of (a) The relation between the University and the affiliated Colleges and other Provincial educational institutions, (b) What will accomplish a closer, and at the same time more efficient relationship between them.1 1Universityoeranitoba Commission (1910) Report, 1910, p. 350 It is interesting to note, in connection with (b), the Commis- sion's interpretation Of governmental attitude: "It will be noticed that the appointing power is wishing light and recom- mendation on what the relations are and how they can be made closer and more efficient. Not what those relations are and how they can be torn asunder and weakened." Ibid. It would seem that in the public eye, as represented in a re- port on a University Council meeting, appearing in the Manitoba Free Press, the dilemma facing the University was not really one of decision among three viable Options for possible future develOpment, but one Of overcoming roadblocks to attaining a con- sensus on "progressive" development. The "college option;'as re- presented by St. Boniface College was seen not as an alternative but as a roadblock. Manitoba Free Press, 16 February 1912. 78 Significantly, the Commission found itself split into three qilite distinct camps on the basic question of desirable future Univer- si_ty deve10pment. The three perspectives were capsulized by the Com- rnisssion report as follows: 1. The continuance of the present self-governing corporation as a confederation of Colleges according to the type Of its original constitution; The abandonment of the present system and the dissolution Of the University corporation and the substitution of an incorporated State institution composed of a Board of Governors appointed by the Lieutenant-Governor-in-Council and maintained by Provincial funds and by the revenues from the assets now owned by the present University corporation, including the land grant, in which institution the Colleges as such would have no voice or part. An intermediate or compromise course which provides that the present corporation should be displaced by an entirely different corporation composed of a Board of Governors ap- pointed by the Lieutenant-Governor-in-Council as successors to all the rights, powers, privileges and prOperty of the present corporation and mainly supported by annual grants from the Provincial Legislature, and which also provides that there should be a Senate in which the affiliated Col- leges would have some representatives and which would be competent to make representations in respect of academic 79 matters to the Board of Governors, who would have final authority therein and in all other University affairs.2 While history was to see the last position prevail, it was not able to secure any preponderant support in the 1910 reporting. It may perhaps be suggested that the various parties in contro- versy were not divided so much on basic principle as they were on their perSpectives on how those principles could best be realized. Two considerations that rise time and again through the period of con- troversy illustrate such a prOposition: the question of the most economical use of the limited resources available to higher education; and the question of denominational college control of a state univer- sity.3 The scarcity of resources was one used actively by the suppor- ters Of the denominational colleges, as they pointed out that with a significant portion Of the demand, viz., Arts, being handled gratis, the state could be freed to allocate more heavily to those areas less likely to receive private support; in this way the University could be made to approach the offerings Of the American state university, which was now becoming the dominant model. We cannot comprehend . . . why there should be such anxiety on the part of those friends Of the University who are not interested in the work or continuance of the work of the Arts Colleges, tO have the University teach those subjects now taught by the Arts Colleges when the University is not teaching those other Art, Literature and Science subjects equally important and not at present taught by the Arts Colleges, and which will not be taught at all unless taught by a University Faculty . . . . 21910 Commission, p. 24. 31bid., p. 87. 41616., p. 44. 80 Such an approach, calling on the University to "supplement tlie work Of the Colleges,"5 does not appear to recognize any innate veilue in the college structure per se -- seeing it only as a fairly smell-endowed agency that can carry on part of the teaching load. It :is in this sense that "their improvement means added strength to the "6 This is not a vision of the Ikiiversity in which they are federated. CC>llege as an integral component of an institution structured by an Organic philOSOphy of education; it is the college as a pro tem "plug" thiit will allow the University time to restructure its priorities and answer the "real" needs of the period. Along what lines Of higher education is Manitoba weakest and laer citizens least provided for? Not in Arts and Science. Undoubtedly the greater body of education lies and must ever lie outside Of higher Arts courses. It is connected with the iltilities and vocations . . . . Without such higher and Special instruction Canada will never take its place among the nations of the world as an industrial and commercial leader. From a slightly different perspective, it is seen to be "Obviously good Provincial economy to encourage the establishment and 5Ibid., p. 45. 6 Ibid. 7Ibid. The priorities implicit in this position are suggested in the following statement. "While huge arguments are being forged as to whether intellec- tual breadth must be grown from Latin or Greek roots, or higher English should be taught in College or University, higher education in the utilities and vocations is being neglected." Ibid. 81 stimulate the growth of [private] colleges and institutions in it. They constantly attract private benefaction, State Universities rarely do, and the State gets the benefit of such private generosity.”8 This latter was an argument taken up by the denominational colleges them- selves, when they claimed that their private endowments placed them in a more than competitive position, vis-a-vis the state institution. The endowment and lands of {wesley College] are now valued at $850,000. If public Opinion forces the powers that be to grant it terms that a self-reSpecting institution can accept and which will give it any chance for competition on even terms, it is prOposed to raise this at once to a million or more. The annual contribu- tion which the college receives from the Methodist church pays for the theological work in prOportion to the number of students, there- fore, its endowment will be as heavy as that of Harvard or Yale. The quality of work done by an educational institution depends al- most entirely on the efficiency of its staff, and, other things being equal, the quality Of its staff is roughly prOportionate to the salaries paid. . . . insinuations of future inefficiency owing to meagre funds, and of correSpondingly low standards9 are entirely irrelevant as applied to Wesley College . . . . It must, indeed, seem to the unprejudiced observer that it is the state institution which is less likely to be able to meet competition.10 81bid., p. 60. 9"Insinuations" Of thh; sort appeared in that portion of the 1910 Commission Report written by the supporters Of the "state university" concept. ". . . the resources for the maintenance of a denominational institution dependent on voluntary contribution, are usually inadequate and necessarily cannot be compared with those of an institution having behind it the entire assets Of the state." Ibid., p. 88. 10The Winnipeg Telegram, 18 February 1911. 82 Arguments in Opposition to this position ranged from a denying 11 to a seeing of a positive point, of the college's endowment strength, that is, the effectiveness of the colleges in drawing private benefac- tion, in a negative light, viz., as drawing public support away from the University. Whether a significant portion of the support given the colleges would have transferred, on their demise, to the University, is, of course, unanswerable. But a good deal of the misunderstanding characteristic of the period might revolve about a supposition, on the part of the state-university partisans, of a "floating" source of re- sources that would be diverted as easily to the University, if it proved itself useful,12 as it had been to date, to the colleges, and an Opposite supposition, on the part Of the college partisans, that without the existence Of the colleges as viable entities, that block of revenue derived from private sources, would disappear. Certainly 11"The statement of the endowment Of Wésley College given by Prof. Wilson will probably mislead many. The income-producing endowment amounted, last summer, to only $161,180. The "lands" referred to by Prof. Wilson are the valuable college site on Portage Avenue, which is Of course not revenue producing, and would only become so by the college selling its present site and purchasing a much cheaper one outside the city." Manitobngree Press, 20 February 1911. 2Referring to the example Of American Mid-Western State Univer- sity, a newSpaper column suggests: "The university tax in the states named is paid very willingly; we believe it would be paid with equal willingness in Manitoba if it went to the support Of an institution so useful as the universities of those two states." Manitoba Free Press, 8 March 1911. 83 ' would the Opposition to the former group to "wasteful duplication' derive from its suppositiOn; the support.of the latter group for ‘ "healthy competition” (the other side of the same phenomenon) would derive from its supposition.13 Attitudes deriving from other than financial equations, however, prevented the enthusiastic acceptance of what, at an objective level, would appear to be "realistic" com- promise -- a system of divided, and therefore not overlapping, res- ponsibilities. The following is an excerpt from the portion of the report written by the "state University concept" supporters on the 14 Commission. 13The argument from economy, urged particularly by wesley Col- lege as a justification for the preservation of a federal system Of competing private arts colleges, was rather summarily dismissed as inconsistent by Dr. Halpenny: "They are not willing that the provincial university should waste money teaching over the same field as themselves but they are quite willing that several denominational colleges may waste funds covering that identical field. And again, they fear competition on the part of the university but they do not fear the competition Of denominational colleges." Manitoba Free Press, 20 February 1911. 14Mr. Justice J. D. Cameron and Dr. w. A. McIntyre The popular strength Of the state-university position derived in large part from the elements supporting it -- the represen- tatives of Convocation (i.e., the alumni), and of the Medical College, and the leaders of the public school system. The compromise position, on the other hand, "did . . . not [have] many supporters among the public, which was largely unacquainted with the University of Toronto and the British universities from which the evolutionists derived their ideal." Morton, One Universit , pp. 66-67. 84 It is further urged that as the colleges are already per- forming much of the University work, particularly in the depart- ment of Arts, it would be eXpedient to relegate to them in- definitely the task of instruction in a number Of University de- partments, as for example: Classics, Modern Languages, Philosophy, and others, while the University should confine itself to the Sciences and the remaining branches of the curriculum. For various reasons we cannot accept this view. In the first place, the Univer- sity would, under the prOposed scheme, have no control whatever over the appointment or dismissal of the college teachers. In the next place, it is, we submit, evident that the work now undertaken by four colleges, teaching practically the same subjects, could and would be better done if concentrated in one vigorous state- aided institution. We find that the results Of instruction in a denominational institution are, as a general rule, not up to the standard Of those attained in an institution adequately supported by the state. The denominational college is usually established, primarily, for the purpose of giving religious instruction. With it all other instruction is, necessarily, of secondary importance only. And the conclusion has been drawn by competent Observers that denominational control is, by no means, the best method of evolving an effective organization for deve10ping a University.1 It is obvious that even the "practical" considerations devolve finally on the question of the role denominational institutions should play in a system Of public education.16 Even the moderate "middle" group on the 1910 Commission, who wished tO define an integral role for the denominational colleges,‘was bothered by the realization that the University must, in a period when the state was wishing to make 151910 Commission. pp. 87-88. It should be noted that it was sentiment Of this sort that Professor Wilson of wesley College was attempting to combat in his newspaper article quoted on page 81 above. 16The dissention over sectarian control in higher education has been seen as an extension of the sentiments which had only just been successful in making the public school system truly non-sectarian (if not secular). Baird, "History," p. 31. 85 even greater use of it, be able to reSpond to social need, in the terms of that need as defined by the public and through an integrated and rationalized organization. ". . . it is evident that the University cannot serve five masters -- one public, and four denominational -- and that we dare not build our educational house upon the shifting sands of denominational convenience."17 Again, a different perspective on the same phenomenon is demonstrated. While the secularists feel that only a governmentally-appointed council can provide a unified out- look representative Of the supportive community, the pro-college ele- ment argues that the Council as constituted already reflected the full community (rather than just the petty concerns of minority groups); ". . . the four largest denominations, representing the vast majority of the peOple through the colleges they support, have equal membership in it, and because the Manitoba Medical College, the College of Agri- culture, and the College Of Pharmacy, composed of persons from all the religious denominations, are represented in the corporation."18 But the Opponents of the denominational colleges tended not to see the denominations as constituencies of the general community, but as the Church qua institution. And, in their view, the Church had no right to any form Of control of any field of education on which the develOp- ment Of the province depended. 171910 Commission, p. 82. 18Ibid., p. 10. 86 It was this basic question -- one really Of separation of church and state, but one also of Special advantage -- that figured significantly in the discussions on reordering the University's governing structure. The controversy which finally culminated in 1917, with a new definition of university government, was fought, perhaps ironically, with the questions Of principle the concern of the state-University supporters, and the question Of corporate rights the concern Of the denominational college supporters. The latter arguments took two principal forms: accrued col- lege rights, and their present rights as contributing institutions. An example Of the former argument can be seen in Professor Wilson's "Case for Wesley College." The conditions offered Wesley College when it entered the con- federation Of colleges which constituted the University and con- firmed by subsequent legislation, have made it such a part. There exists, therefore, an implied contract between the Province and College, in which the College has fulfilled its part by doing the work given it effectively and well . . . . As long as it fulfilled its part of the contract, the College would have the right to in- sist that such acquired interest should be conserved in any changes contemplated.19 lgN. R. Wilson. The Case for wesley Collegg (Winnipeg, 1910), p.3. Wilson adds the qualification that what the college is fighting for, in attempting to retain the federal structure, is not just its own self-interests. "The College believes that it has substantiated the statement that the University system it advocates is in the best interests of higher education. Were it not able to do so, such insistence would expose it to the charge of denominational self-seeking." Ibid. Professor Wilson's comments were apparently viewed by his Opponent, Dr. Jasper Halpenny, who was also associated with wesley College, "as a definite statement of the present nature of the demands of the majority of the board of Wesley College and the views of some Of the faculty." Manitoba Free Press, 20 February 1911. 87 Ironically, Wilson was writing in defence of a petition, on the part of wesley College, for separate degree-granting powers. Such an eventuality was in fact implicitly predicted, by the college-sup- porters On the 1910 Commission, to be the logical outcome Of an ig- noring of the "vested rights" argument.20 At the time the Commission was deliberating, however, the Spectre of secession had not arisen in more than hypothetical form, and the state-University supporters on the Commission felt free to dismiss out-Of-hand the "College rights" argument: 20 Some of the views given by those who support the maintenance of the University Corporation, and Oppose the other views, were: ". . . that the three Colleges, St. Boniface, St. John's and Manitoba, connected to the University by charter, and those joining the federation after, were so connected and joined by the statutory agreement that they would become component parts Of the University and entitled to elect members Of the corpora- tion and thus have a voice in its management and course of study, examinations and degrees. That in consequence of these they gave up their independence, submitted to standards of education defined by the University, made the University what it is, did the teaching in the higher branches at their own expense and Spent large amounts in grounds, buildings and endowments, and in many ways altered their position to accommodate themselves to the system. That any interference with the organization without the consent of the component parts would be unjust and unprecedented. That a disbanding Of the federation or a deliberate disregard Of the basis Of union upon which they entered the University confederation, or any material alteration in the constitution of confederation, would be the occasion of the self-respecting Colleges which had done all the practical work Of the Univer- sity in directing and instructing students, claiming the rights of examining and conferring degrees, which on entering con- federation they had foregone and Of claiming an interest in the land grant given to a University federation Of which they formed part and because they so formed part of it." 1910 Commission, pp. 24-25. 88 It is urged on behalf of the colleges that inasmuch as they have hitherto sustained, in great part, the burden of instruction in the branches Of higher education in this Province, they are entitled to consideration therefor, and, consequently, to some permanent participation in the control of the University as it shall be re-constituted. For our part we must definitely reject this contention. That at the time of the original incorporation the Legislature had any such intention is inconceivable. And in a re-organization of the University the Government and the Legis- lature will be called upon to deal with a matter Of supreme impor- tance involving the vital interests of future generations of students and of higher education in the Province, which interests alone have any claim to consideration by the Government and the Legislature. That the colleges have already acquired any vested rights in respect Of those future interests it seems to us impos- sible to maintain. Moreover, it is clear that in the past these colleges have derived great benefits from the University, and that in the future they will receive even greater advantages from it when re-organized as we prOpose. Much the same sentiment is echoed subsequently in the public press: the original constitution was not sacrosanm and, although the denominational colleges had contributed much, neither the University nor the Province was in a position of "indebtedness" to the Colleges.22 lebid., p. 87 22"In the early history Of this province the denominational col- leges undertook the work Of higher education and carried it on as best they could. Let us give them all credit for their noble work. Let us give them credit tOO for what they have done in collaboration with the university in more recent years. But it does not follow that this division of work between university and colleges must go on forever because good resulted from it in the past. It was a make-shift plan at best. The province has outgrown it and insists that some more effec- tive method of providing higher education should be found. Because the Red River cart was a very useful conveyance forty years ago, we are not obliged to use it now if we can afford an automobile. We hear a good deal about the debt which the university owes the colleges, and we may admit that there was such a debt. But 89 Perhaps recognizing the public's feeling that the college argument in this matter was reactionary and obstructionist, the colleges, wisely, did not emphasize it subsequently. Instead, they turned to the principles adOpted by the Commis- sion itself. The Commission Report implicitly laid the foundation for state-majority on the governing body of the University. In what is phrased in an objective, "commonsense" fashion is the principle that "any additional representation . . . should be placed on a logical and reasonable basis, viz., on the prOportion it contributes to the establishment and maintenance of colleges for higher education, federated in the University."23 This,said the colleges, and not a re- turn to an irretrievable past, was precisely what they were seeking. Frequent statements to the contrary notwithstanding, Wesley College has advocated from the very beginning that the state should have a dominant voice in the ultimate governing body . But apart from this, representation should, roughly speaking, be proportionate to the contribution which an institution makes to higher education. A large majority Of the supreme governing body of the University, the body that controls the ultimate policy Of the province in respect to higher education, should be appointed by the province. But an institution which makes a serious contri- bution to higher education should have some direct representation.2 let us not forget that some of the denominational colleges are Older than the university, and it was organized tO help the affiliated colleges, and that in the past twenty years it has done a great deal Of work which they have been utterly un- able to do effectively, but which would have been demanded Of them notwithstanding, had there been no university. Whatever debt the university owed the colleges seems to have been dis- charged in full." Manitoba Free Press, 10 March 1911. 231910 Commission, p. 24. 24WilSOn,.g_p. cit.,p. 8. 90 But those supporting a state university concept took a different view of the matter. In advocating a more truly "public" government -- in what was to become a state-appointed Board of Governors -- and in denying to the denominational colleges representation on that Board -- the Commission was indeed radically modifying the definition of the university and Of the colleges. They were unwarranted in their claim that such a new arrangement "should not . . . be deemed a new Corpora- tion, but the successor and heir-at-law of the University in all its varied forms and constituent elements."25 The colleges were very much aware that financial administration and academic planning were not easily divorcible. Without their having access to the highest governing body, they could envision the univer- sity moving in directions over which they had no control and which might in fact prove antithetical to the principles they felt bound to serve and to the automony to which they felt themselves committed. The reaction of the colleges to the government draft 1911 Bill,26 which incorporated in large part this portion Of the Commission's recommendations, becomes quite understandable: The new University Bill prOposes to destroy the present University corporation, and construct an entirely new corpcra- tion. While it pretends tO retain the college in association 251910 Commission, p. 71. 26The prOposed bill was not in fact supported by the Provincial Government, and thus never became law. 27Although writing earlier than Wilson, the Commissioners indi- cated, with reSpect to their recommendation for a Board of Governors, that they were "not impressed by the arguments that the Affiliated Colleges constitute the Corporation of the Uni- versity and that therefore the Constitution cannot be altered without destroying the Corporation." Ibid., p. 70 91 with the University, its provisions are such as to make it a mere hanger-on, and to render the conditions of existence absolutely intolerable. 8 It is fair to emphasize that while the colleges were quite naturally concerned with their own future, they were also fighting for aspects of higher education they felt had been safeguarded during the era of the Colleges and were now endangered with the prOposed "public" university. The supporters of the state-university concept had a preconception of the word "public" that derived in large part from earlier creations of boards of directors Of the various profes- sional schools -- in general terms, this was envisioned as the "con- cerned constituencies."29 It was the college view, however, that such a principle was not easily transferred to the University as a whole. There is no natural "constituency" for Arts -- advocates would almost of necessity have to be partisans of Arts institutions. Representation Of the "public" that did not make provision for such indirect institu- tional representation but was instead just an election of graduates by 28Wilson,‘gp. cit., p. 3. 29The example might be taken Of the prOposals reSpecting a Col- lege of Household Science: ". . . the Government of the College should be by a board of ten directors, as in the case of the Agricultural College, the Minister of Education ex-Officio, the four persons selected by the farmers under the provisions Of the Act incorporating the Agricultural College of Manitoba, two by the Council of the University Of Manitoba, and three appointed by the Lieutenant- Governor-in-Council Of Manitoba to represent the urban pOpula- tion which would not be represented if the instruction was given in a department Of the Agricultural College. It is desirable to have all classes actively interested in and supporting such teaching." 1910 Commission, p. 53. 92 graduates, would be a representation that boded ill for the balance of the University: ". . . the choice of convocation is apt to fall on men most in the public eye, i.e., lawyers and doctors. As a re- sult the number Of these selected as graduate representatives is some- what disprOportionate."30 The colleges had been the dynamic partisans of Arts work on the Council (too often to the detriment of the profes- sional faculties, claimed the advocates of the state university), and without their input, the "natural" priorities of a state-supported institution would lead to the relative decline of that vital component. The arts work does not appeal to the government of a province as does the scientific or professional side, returns from which are more tangible and immediate, as a result there is a tendency to neglect arts work in a state institution.31 It is perhaps this self-defined responsibility to maintain an academic balance that caused the colleges to attempt to define their subsequent role as one of competition as Opposed to OOOperation. Co- operation, in a politically disenfranchized situation, would neces- sitate acquiescence to the priorities and overall structure defined for the University by the Board of Governors and the Province. There would be no tool except persuasion through the academic governing body, the prOposed Senate, to alter or affect those priorities. A role of competition with a state supported Arts college, however, would place the colleges in the position Of being able to impress their influence for balance, regardless of the sensibilities of the governing Board. 30 O Wilson, 22. it., p. 11. 31Ibid., p. 7. 93 ‘ If those who have honestly at heart what is best for higher education would pause a moment, they would see that nothing could such a tendency [i.e., to ignore the Arts] so effectively as the honorable rivalry of an institution with a sufficient equipment to set a pace which the province will have some difficulty in main- taining, and yet for very shame is bound to equal.32 Professor Wilson makes clear in a separate newspaper article that his prOposal was prompted by an historical lesson derived from the experience of the University of Toronto. He was concerned that his own Wesley College, and presumably the other denominational Arts colleges, should not suffer the difficulties felt by Victoria College in attempting to compete with a "university" Arts component which was in effect a constituent component of the larger institution, and hence derived an unfair advantage in its identification with it.33 The fear was not without reality for wesley College, for an earlier experiment of giving up its Arts instruction to the University, while remaining a college locus for its students, had proven a failure. Student loyality was indeed found to gravitate to the centre of instruction. 321bid. Ironically, wesley College had, in endorsing in 1908 the thrust of the restructuring of the University of Toronto, expressed as its principal reservation the duplication of the university College vis-a-vis the other affiliated college. This apparent inconsistency in its position was brought forward pointedly by its Opponent, Dr. Halpenny, in 1911. Manitoba Free Press, 20 February 1911. 33". . . Wesley College had advocated that the teaching of Arts by the state be done in a college under separate management and in a separate building, the said college occupying a posi- tion identical with that of the other arts colleges; in other words, an arrangement similar to that now Obtaining in the University of Toronto. Under the draft bill (1911) there is 94 The position received little SUpport in either the press or the 1910 Commission. The former seemed unable to accept the college's motives as being concern for the best interests of Arts education per se. The latter Saw the prOposal as unrealistic, and as an arrange- ment that would prevent the state from doing as much as it could for Arts, rather than induce it to do more, as Wilson argued. we are . . . of the Opinion that no one desiring to take a degree in Arts, should be compelled, against his inclination, to take his course of instruction in a denominational college. The injustice of this is manifest. To meet such cases it would be necessary, if the present state of affairs continued, to create still another college, purely under state control. But in our judgment this course would simply still further complicate the present situation and presents no final solutions of the questions involved. A Provincial College, teaching in competition with the denominational colleges, will, when seeking larger revenues to in- crease its efficiency, almost inevitably meet with their opposition. The colleges will urge that they, supported by voluntary contribu- tions only, would, by such Provincial assistance, be placed at an unfair disadvantage in competition with a public institution to the support of which all alike contribute. Thus the Provincial College, isolated from the University, would be foredoomed to a non-progressive and stunted existence.34 no separation of any sort; it will in this reSpect be similar to Toronto under the Old Ontario Act. Why should we not pro- fit by the experience that led to the change recently made in that Act? It was found that hundreds of Methodist students registered in the university of arts instead of in Victoria College. Inquiry among these elicited the information that this was due to their misunderstanding of the constitution of the university. Knowing that only certain subjects were taught in Victoria, the inference was drawn that a student registered there would be at a disadvantage and regarded as an interIOper in the university classes he might take. In other words, the prestige of the scientific and professional faculties of the university was drawing students to its arts faculty who might naturally have been expected to attend Victoria. SO just was Victoria's demand to be relieved from such a disability that even some professors of the university supported it. It was met by the organization of University College, under entirely separate management." Winnipeg Telegram, 18 February 1911. 34 1 01“ Cami Quinn n RR 95 The prOposal was not seriously considered again. But the dif- ficult question remained of the position that should prOperly be de- fined for the denominational colleges within the University. History was on the side of a loose federation, and contemporary temper would not tolerate the very close and favoured interdigitation, within the n35 University, Of a "constituent college status applied to denomina- tional colleges representing minority groups within the province. Perhaps as significant, however, was the historical dissimilarity among the colleges; . . their views do not coincide as to the amount of Univer- sity work they severally desire to undertake, and even if they were unanimous now they can give no guarantee that they would re- main so, and would always teach a certain Specified part of the University curriculum . . . . Thus the changing needs of changing times would force both parties to break such an agreement. Parallel concerns run through this argument. In part it is an in- vitation to establish ad hoc arrangements reasonably susceptible 35As used at the University of Manitoba, the term refers to a college which is in actuality a component of the Faculty of Arts and Science, with the latter having full control of it. 36". . . four or five denominations would then sit entrenched within the University system, to the disadvantage and irrita- tion of all other denominations whose members pay their full share of taxes. Moreover the danger of an imperium i3 imperio would here be raised to the fourth power. These four denomina- tional colleges would be able strongly to influence the policy of the University, and the University would have no voice in framing their educational policy." Ibid., p. 81. 37Ibid., pp. 81-82. 96 of modification as required by the colleges. In this reSpect they would be able to fulfil their defined objectives without having to fulfil what might be for them the unattainable Objectives of the University per se. But if what the colleges were doing was not inti- mately interdigitated with the university structure -- that is, if the University's organization and programs were unaffected by modifi- cations in the colleges, the University would not, therefore, "run the risk of being either the Stepping-Stone of Ca college's] ambition of the victim Of its mistake."38 Aside from SUpervision of academic standards, through control of examination and instruction, the Univer- sity would have no responsibility for the college as a corporate insti- tution. And by judging the individual colleges in terms of what they defined as their peculiar objectives, the University would not be placed in the difficult position of defining a college and of assuming responsibility for instituting a uniformity among the institutions affiliated to it. Implicitly, it is envisioned that such an arrange- ment would permit the University to accommodate a wider range of insti- tutions, and thereby retain the organic unity of higher education39 38Ibid., p. 82. 39"It is desirable, for historical reasons, for the unification of Higher Educational interests and for the maintenance Of a high standard that these Colleges Should be encouraged to re- main in affiliation and that others should be encouraged to enter into affiliation, provided such results can be Obtained on a reasonable basis." Ibid., p. 81. 97 n40 ”one University. implied in the principle of This mutual benefit, as seen by the Commission was to be realized in a system of "friendly co—Operation, but with unfettered freedom."41 The by-word was "liberty" -- liberty, on the part of the University to grow untrammeled by any ”tacit understandings "42 with the colleges, to enter an Open-ended future as a full state university with no qualifications on its activities; liberty, on the part of the colleges, "to teach over the whole field or over as much of it, or over as little of it, as may either now or at any future time, suit their varying and divergent interests”!+3 But the prOposal was not intended to prevent reasonably close relations between University and colleges. The concept of affiliation, however carefully circumscribed, implied several possible areas in which COOperation and co-ordination would not limit but rather enhance the desired freedom. Among those suggested in the Report were: co-Operation in instruction, including conference and common action among the heads of the institutions on 0"If any denomination which has not yet a College in Manitoba desires to establish a TheolOgical Seminary in connection with Manitoba University, it ought to be free to do so, without being compelled either to Shoulder the burden of Arts Education or else occupy a position relatively inferior to that of the existing denominational colleges." Ibid., p. 82. Allbid. 42Ibid. 43161a. 98 matters Of mutual concern; recognition of college lectures in lieu of those offered at the University; provision for college students to be able to attend University lectures; reimbursement of the colleges for the teaching of University courses; acceptance Of college students for University examinations (including a recognition of term work completed at the colleges, for up to one-third of the total grade);44 making provision for a common campus, including the gift (during affiliation) of tax-and-rent-free sites; ensuring full consideration to the views and interests of the colleges ("on all matters not pre- judicial tO the general welfare and progress Of the University");45 and permitting transfer to the University, and at a parallel level, of those college staff under forty-five years of age, who proved themselves academically acceptable, were willing to make the move, and whose colleges were willing to release them.46 The principle of affiliation thus defined was supported prin- n47 cipally by the "compromise" group within the Commission, and in 44This suggestion was accompanied by the qualification that such recognition of term work "should not apply to the examinations for University Medals, Scholarships and Fellowships." (p. 83). As soon as college students begin to be considered "outsiders," as they are to a greater or lesser extent from this time for- ward, the awarding of "University" awards becomes a point of some difficulty, with the university hesitant to accept -- largely through a concern for objectivity -- grades not certi- fied by exactly the same examination process. The colleges, on the other hand, were naturally desirous of some degree of res- ponsibility in the grading of their own students. 4Sibld., p. 83. 461618. 47Gilbert B. Wilson, John A. Machray, James L. Gordon. 99 their minds it offered a solution that at once recognized and retained the value of the college contribution, allowed them to retain a sig- nificant portion of their initial autonomy, and at the same time Spiked the alannm of those critics fearing denominational influence. In spirit, and in large part in form, this definition, though never formally approved by University or Government, became the basis for affiliation of the church colleges until the latter 1960's. . the plan here prOposed gives fair play to all the interests involved, recognizes the absolute equality of all religious bodies before the law, places no educational interest or institution in a position of Special advantage or disadvantage, leaves the Denominational Colleges free to work on their own des- tiny in the way which best harmonizes with the ideals and interests of individual denominations, and at the same time preserves the freedom of the University, and provides for its gradual and peace- ful deve10pment.48 Significantly, the position taken by the state-University sup- porters as to the relationship the University should assume with res- pect to private institutions (into which category they wished to place the denominational colleges) was also adOpted by the University, in its deve10ping concept of the "approved teaching centre." Though not applied to the major denominational colleges, the concept has allowed such institutions as the Canadian Mennonite Bible College to enter a mutually satisfactory relationship with the University, wherein they are permitted to teach specified courses for university credit. Aside from that arrangement, there is no further connection with the Univer- sity, in government or academic planning (except, of course, what individual arrangements the affected departments of the University 481bid., p. 84. 100 wish to entertain on their own). And it was a relationship not un- like this that the portion of the 1910 report written by the state- University SUpporters suggests. Colleges would, if "deemed worthy," be placed on a "list of certified institutions” (and would be re- moved therefrom if their standards were to drOp). Colleges thus certified would be able to extend to their stu- dents University examination privileges, and could, at the discretion of the University, be given some autonomy in the matter of text books and term work. Finally, the Commissioners offered the rather ambi- guous suggestion that If, for any reaSon, the University fail to Open a department correSponding to any of those now represented in the Denomina- tional Colleges, the President of the University, as Acting Dean of the Faculty, might call into his assistance teachers or professors of the certificated colleges, or qualified persons outside of these colleges to assist him in the particular work of administering the affairs of that department. This latter point quite probably derives from the contentious ques- tion of whether there should be any "division" of subjects between University and colleges. Certainly the "compromise" grOUp on the Commission had the concern in mind when they emphasized that the University must not be bound to any permanent limitations in its arrangements with the colleges. The "problem" may have been largely an illusory one, arising, as did so many others, principally 491b1d., p. 92. 101 out of a lack of understanding of Opposing positions.SO Nonetheless, the state-University supporters were concerned that any form of accom- modation reached with the colleges would in no wise give the colleges even limited control or authority over University programs. If a college were, for a time, to be the only agency offering a particular university program, the staff so involved would be seconded to the 33 igge University department, and hence, for the time the course was offered solely in the college, would be under the direct academic con- trol of the University. O . . . . . 5 While the notion appears in the CommisSion report, as one of the suggestions of the college supporters, in the suggestion to leave ”to the Colleges the subjects suggested as a standard of college affiliation (p. 58)," Prof. Wilson insists that the colleges' position on the matter had been misinterpreted; "The statement is made [that] the colleges have been making demands for 'college control of the university,‘ and for ex- clusive rights to certain subjects. As far as Wesley College is concerned, the statement that it has aimed at 'college control' is absolutely false. . . . nor does Wesley College advocate the alienation of certain subjects to the 'colleges' exclusively. Some years ago, when it was informed that the other colleges were anxious to continue teaching arts, so that practically all classes of students were provided with such instruction, Wesley College, solely on the grounds of economy, did suggest that the university supply itself with teachers in subjects not taught elsewhere in the province rather than dup- licate work already done by the 'colleges.' . . . when it had appeared that certain of these [colleges] found the burden too heavy for them so that there was immediate need for a state arts college, it (Wesley College] advocated the institution of such an arts college as soon as funds could be secured from the state. So far as the writer can discover, there is nothing in these communications or otherwise to warrant the statement that it was ever intended that these subjects were to be relegated to the colleges in perpetuity." Winnipeg_Telggram, 18 February 1911. 102 The college-supporters on the Commission tended to be more willing to Specify fixed criteria for federation of a college, and seemed committed to having only one form of association with the University, and this one of close interdigitation -- with involvement 51 in the actual governing of the University. It is quite obvious 51"We are also of the Opinion that to entitle an Arts College to membership in the confederation it should have a staff of professors and teaching officers and the necessary buildings to efficiently teach at least the following subjects, or their equivalent Options in the University curriculum: Greek, Latin, English, French, German, Ancient History, Philosophy, Psycho- logy, Ethics, Logic and Mathematics at all events in the junior years. No College doing less could reasonably claim a right to be called an Arts College. The standard to entitle to federa- tion should be similarly fixed in other branches: Agriculture, Engineering and Mechanical Arts, Domestic Science, Medicine, Law, etc. It will be Observed that though the Statute speaks of colleges being affiliated with the University, they are really federated in it through their representatives who become members of the University Corporation and participate in the government of the corporation . The term "federated college," we think, Should be applied to those colleges which having satisfied the Lieutenant-Governor- in-Council of the sufficiency of its buildings, accommodation and equipment and the sufficiency of its teaching staff to meet the required standard, it becomes by Order-in-Council a consti- tuent in the University and entitled to the maximum representa- tion in the Council. All other colleges not coming up to the standard for federation in the University and full representation on the Council should on satisfying the Lieutenant-Governor-in Council that it has the requisites therefor, be affiliated and entitled to some representatives to sit and act with the Senate, in no case ex- ceeding three each. We take the fact to be that the federated colleges are parts of the University, and suggest that the term "College" should be applied to that part of the University which offers instruction according to University curriculum leading to a degree in Arts, Letters or Sciences, Medicine, Law, Agriculture, Engineering and Mechanical Arts, and Household Science, Etc." 1910 Commission, pp. 38-39. 103 that this stance was in conscious Opposition to the positions of both the state-University SUpporters and the compromise group. With res- pect to the former, the basic point of separation is, Of course, the question of college participation in University government. To a certain extent something of the same dichotomy exists also with res- pect to the compromise group. But more subtle factors also are ap- parent. The college supporters may well have viewed the great flexi- bility suggested by the compromise group, in respect of the conditions of affiliation, as being as much detrimental as beneficial. Quite evidently, a wide variance in conditions Of affiliation would render very difficult the formulation of criteria to determine eligibility for representation on the Council, and amount of_representation, vis- a-vis, other affiliated institutions -- even if there were general sentiment to accommodate such representation. Without such sentiment, and it was not in strong evidence, the disparity could well be used as an effective excuse and rationalization for blocking any represen- tation on the part of the affiliated institutions. The colleges were aware that one Of the most powerful arguments in the hands of their enemies was the wide spectrum of quality that could exist under a sys- tem of flexible affiliation criteria, and the extreme difficulty the University would face in attempting to correct or eradicate entrenched colleges of falling standards. And, even if such Opposition could be overcome, the colleges themselves could face a situation where even among themselves bad feelings would develOp as a result of suSpected inequities -- if no Objective formula for representation were available. 104 Professor Wilson's comments in this respect suggest that the colleges were not themselves a solid front of mutual esteem: if college, as is the case in one instance at least, a college prOposes to send its students to University lectures, equipping itself as a mere residence with half a dozen ill-paid coaches, half teachers, half preachers, under the bill such an institution, whose staff may not contain a Single full professor in Arts, will have a representation equal to that of any Arts college and greater than any faculty of the University, however large and efficient these may become. Where were the wits of the eminent educationalists, lawyers and doctors who presided at the birth of such an abortion.52 It was probably as much, therefore, a concern for the welfare of the colleges as it was for the overall academic quality Of the University that prompted the pro-college component of the Commission to urge criteria for removal of federated status and reduction of repre- sentation, suggestions which understandably do not enter either of the other two minority reports: There is a serious defect in the University Act in that it does not require as a condition of the continuance Of a college in the University Confederation, that it should continue to be posses- sed of the requisite buildings and staff of professors and teaching officers to give a high standard of education in a minimum or given number of subjects, and maintain its efficiency as an institution of higher learning. It is obvious that if a federated college be- comes weak and inefficient, and does not maintain a sufficient staff of professors and teaching officers in the higher branches of education, such college will tend to lower the standard of University education and to inefficiency in the federation. Upon such a consideration Of affairs arising with any college it should thereupon, as the circumstances may justify, either cease to be a member of the University confederation or become simply affiliated as later on SUggested, and its representation accordingly reduced. And we recommend that the University Act should be amended accor- dingly.53 52WinnipggTelegram, 18 February 1911. 531910 Commission, p. 39. 105 An additional important consideration may have prompted this desire for criteria. If the colleges could be weighted one against another in such matters as representation on the University governing bodies, so also could the University Arts component. The inequity, in the eyes of the colleges, of weighting the University component (i.e., as a "faculty") on a basis different from that used in weighting Arts colleges of equal staff and student size54 would persist as long as the two entities were seen as different in kind. With formula- based representation applied toward the University faculties as well as the colleges (or, from another perSpective, with all Of the "facul- ties" treated as federated colleges), the colleges could be assured of the vital principle that they felt was waning with the growth of the teaching University -- voice in proportion to contribution. It would appear that this notion is implicit in the pro-college minority group's recommendation respecting institution of a state Arts 54As Professor Wilson complains: "0n the Senate, each university faculty has two representatives and each Arts college, three, one, presumably, as a ”vocational school," in theology, and two for its other work. Suppose, for example, as may be the case, in the immediate future, that Wesley College and the University have each a staff of sixteen members, the latter in four faculties, Wesley would then have three represen- tatives and the University eight, though they are making equal con- tributions to higher education. What is more, however, Wesley may increase its staff, its representation does not increase while a widening of the field covered by the state-paid part of the insti- tution may mean increased representation." Winnipeg Telegram, 18 February 1911. 106 55 as a concept it serves to explain the heavy weight the College, colleges placed on such an institution. As with so many of the argu- ments prOposed during this period, the American model was evoked. The principle of treating university faculties, in their institutional form, as colleges, and thus in a parallel fashion to all other federated institutions, would be "in accord with the most advanced and authori- tative views of university organization."56 It is perhaps significant that the college-supporters should quite pointedly invoke the government as arbiter Of eligibility for federation and of representation upon affiliation or federation. The temper of the time might well be one of "interested parties" who, even as representatives on the University Council could not be trusted to 55"Should it hereafter appear that from any cause the instruction given in the subjects required as a standard of federation to the Arts Colleges, be in the judgment of the Lieutenant-Governor- in Council inadequate, and should it seem accordingly desirable in the judgment of the Lieutenant—Governor-in-Council that pro- vision should be made for additional or better instruction in such subjects, we recommend that such provision should be made in and through a Special Arts College, and so soon as such Arts College reaches the standard and requirements for other federated Arts Colleges in eXpenditure, teaching staff and subjects to be taught . . . it should be federated in the University and en- titled to the same representation as they are in the Council and its committees. The Same principle might be applied to any other non-State Colleges in the University." 1910 Commission, p. 39. 56Wilson,._o_2. cit., p. 4. 107 57 Ironi- come to a completely Objective assessment in such matters. cally, the state-University supporters tended to characterize the Old Council as a fragmented body of divergent interests; and yet the Colleges never sought governmental protection of their own interests in that context. The ambiguous transfer of the American model is apparent in yet another factor. The ideal of a "service-oriented" University, the extension of which "should in every case be determined by the needs of the peOple of the Province,"58 was endorsed by the state- University supporters of the 1910 Commission (again with the model of Wisconsin before it). But importantly, it was endorsed also by the college-supporters on the Commission, and they too argued that the "line of development, whether by adding departments or completing those already organized should in every case be determined, not by any traditional views as to what a University must be, but solely to subserve the well-being and meet the needs Of the people of this Pro- vince and country."59 And it is important to bear in mind that the 57Something of this sentiment is felt in Professor Wilson's des- cription Of the Wesley College's experience in attempting to treat with the University Council on the prOposed 1911 bill. "When the University Council abruptly refused the request of the College for a committee to confer on those oppressive clauses, Wesley College as a last resort, applied for degree- granting powers, an instrument not of coercion but of self- preservation." Wilson, gp. cit., p. 6. 581910 Commission, p. 92. 591bid., pp. 74-75. .11.. .‘e W». e; ‘ I \ 108 colleges individually, and through the agency Of the University, had always defined as an aspect of their reSponsibilities the meeting of the needs of the larger community. What was to separate the two ap- proaches, then, was not intent (although the state-University suppor- ters envisioned a far broader scope of services), but the manner of execution. Whereas the colleges had felt competent to plan and execute extension work through the agency of the Council and their own boards, the state-University supporters were looking to the model Of the state agricultural college, and the principle of representative government (i.e., representative of the various affected constituencies) it implied. In their wish to extend this principle to University- government, they were, in the eyes of the colleges, moving control of the institution's guiding philOSOphy and priorities to external agencies. And yet such transfer of control seems precisely what many were seeking in their ambiguous conception of the "people" to whom the University prOperly belonged.6o What was perhaps most important was the failure to see that the college or university had any necessary and essential nature and laws of operation as an academic entity. The spectre of "denominational" control made the Opponents blind to the fact that the college leaders were also academics and scholars committed to a definition of what an educational institution must be. Its government and orientation could change, but for the institution to remain truly a college or university it must change organically and on its own terms. Again there was a basic point 60Editorial, The Western School Journal, Vol. VIII (December, 1913), pp. 347-349. 109 of difference with their Opponents whose vision of a university seemed to be one of a machine with interchangeable parts and easy adjustment. They could not understand the view of the college leaders that tradi- tion must be the starting point of change.61 Much of the rancour directed against the denominational col- leges derived, indirectly, from the contemporary failure to differen- tiate between college and university. The cOlleges were criticised 62 The for not comprising, in their aggregate, a "real" university. model being praised, the American State University, was a creature different in origin, orientation, government and support from the denominational colleges of Manitoba.63 A more apt comparison might 61Manitoba Free Press, 25 February 1911. 62The term "A Real University" appeared in 1911 as the title of one of a series of articles on the University of Manitoba; Manitoba Free Press, 28 February 1911. 63A favourite example was that of Wisconsin, and the rapsodic image derived from it suggests the restructuring envisioned for the University: "In our last article we tried to describe in outline the University which many people hOpe to see established here in time -- a university strictly provincial in Spirit and manage- ment and serving all classes of the community. The ideal is not impossible; it has been realized in Wisconsin, and not many years were required to do it . . . . 'It seems to be a first principle of its existence to perpetuate all that is good in the past; to prepare for the future by deve10ping power and intelligence in the young people who meet within its walls and above all to serve in the present, by studying existing social, political, industrial and economic needs and suggesting means for supplying them. 110 have been to an Arts college within such a state university, but such a comparison was not made by the detractors. And as long as the two models were compared, by the same criteria, as alternative reSponses to given needs, there would be a summary dismissal of the federal university, without what might have been a logical consideration of how the existing university model might be accommodated within an ex- panded one answering the broader concerns of the state institution. The first perSpective appears to have been the one assumed by the state-University supporters, the second by the "compromise" group. The "service" ethic that infused the American university was particu- larly attractive to a province that, like the mid-western states, saw the potential link of education and progress. It is in this light that such an enthusiast could say: "It seems to be taken as granted, not only in the college Of agriculture but in every department Of university activity, that the university teachers are to be at the 'Imagine then a college of science, arts and literature which stands for general culture, and a series of related technical schools and colleges, representing every great field Of re- search and every great occupation in the state. Picture also extensive courses so broad that practically everybody who feels so disposed may take advantage of them. Add to these courses correspondence courses so varied that hundreds are coming under the direction of trained instructors of the university. Also add shop classes in the great manufacturing centres of the state; institutes among farmers, teachers, bakers, butchers, and every other class that requires direction and instruction; and public reading courses and debating societies conducted seriously and with rare intelligence. Above all consider the professors in their university as eXperts in their own fields, directing the legislature in all matters affecting trade, com- merce and finance, and you have a faint idea what a live univer- sity means in a wise community.' Conditions in Wisconsin and Manitoba are not identical, but there is similarity enough to suggest that what Wisconsin began to do twenty-six years ago Manitoba may well begin to do now." Ibid. 111 call of the state in all practical matters. . . . The university is not an aristocratic institution whose members are suffering from a surfeit of academic dignity, but a thoroughly useful public corpora- tion with practical ends to serve."64 Significantly, the author styled himself "Manitoba First." While the attitude was hardly an endorsation of academic freedom, it was particularly chilling to de- nominational colleges which felt the necessity of controlling the nature of teaching within their walls. Importantly also, they held as important the principle of preventing state intervention in the internal management of the University. Thus, in the eyes of St. Boniface College, the central issue Of the reorganization crisis was "whether the university would continue to be as it had been for 35 years, a private body, or whether it was to be handed over to the government. Such a change would mean that the University would cease to be self-governing, and become state-owned and state-controlled . . ."65 Thus the serious questioning,during this period, of the place of the denominational colleges brought, for the province, the first serious articulation of the concepts of college and university. In the limited functions Of the university prior to this date -- essen- tially a teaching role with relatively little concern -- or Opportunity -- given to functions of research and service (aside, of course, from the teaching itself). For this reason the terms "college" and "university" tended tO be used almost interchangeably. Even the report of the 1910 Commission indicates a lack of clarity about the concepts. 64Ibid. 6SManitoba Free Press, 16 February 1912. 1f the general conception of a university be true, it is, as suggested by an eminent educationist, a place where by teaching and studying a great deal of knowledge may be acquired on many subjects, and if those Arts, Literature and Science subjects in the curriculum of the University of Manitoba from 1877 to 1900 can be considered as "many subjects," or enough for a University, then clearly these three Colleges, and after 1888 wesley College, were substantially Universities, for in them were taught and studied all those subjects, and in them alone, for the University did no teaching. The federation for the purposes just mentioned ,, was according to the above definition, one of teaching universities.06 This assumption of an identity of definitions presented a threat to the colleges that they could not hOpe to answer in the " the at- traditional molds. If they were just "small universities, tack on them by the state-University SUpporters would be given a real force. Privately SUpported, and limited in the breadth of their offerings, they could not be as "efficient" as a state institution. And, as the strength of the University grew, there would gradually cease to be any need for them. . . wesley College has tacitly endorsed the University as a teaching body by getting from it for her students as much teaching as possible in mathematics and natural science. It seems idle to argue that the colleges are necessary members or organs Of the university body." Changing task, then, the colleges began to argue that they had a unique and vital function to play within the University, a function different in kind from that of the University itself and thus not susceptible to comparison in its terms. The beginnings of such arguments are to be seen, for the Protestant colleges, in Professor 661910 Commission, p. 9. 67Manitoba Free Press, 10 March 1911. 113 Wilson's "Case for wesley College." Among the advantages seen by him are: more effective small-group instruction; personal attention, particularly in the case of women students; personal supervision of the students (i.e., in loco parentis), and the development of desir- able social attitudes. 68 68 u. . we further submit that this collegiate organization affords undoubted advantages: (a) Because of the smaller groups of students, more efficient class-work and more direct supervision is possible. (b) 'Instructors of large classes in the undivided state- (C) institution know their students chiefly in the mass. It is the brilliant man in whom they interest themselves most. If a student is clever, well-prepared, and indus- trious, the difference of environment will be less marked in his case. But for the average student -- for whom, we submit, the arrangements of the institution should be chiefly designed, -- it is of the utmost importance that a closer scrutiny of his work and conduct should be exercised than is possible under conditions that neces- sarily prevail in the large university. In the case of women students these arguments have still greater weight. It may well be doubted if the present gratifying ratio of women to men will not suffer material diminution if the influencesof college life are withdrawn, and they are left to shift entirely for themselves. About such personal supervision the overwhelming majority of parents in this country are extremely solicitous. And this solicitude on the part of parents in regard to the supervision of their children during an impressionable period, when they are, it may be for the first time, away from home, and when they are confronted, again it may be for the first time, by great questions in PhiIOSOphy, Science, Religion and practical conduct, which make it that they stand specially in need of sympathetic guidance, -- this solicitude is not something which grows less as men grow older; it rather becomes keener . . . v 'The conditions which permit of a somewhat deep intimacy between students, and which prevent on the one hand the erection of false social standards, and on the other narrowness of view, are found only in the college of comparatively restricted numbers, where all have a common bond of fellowship, and each feels bound to make some definite contribution to the life and work Of his college community . ."' Wilson, 22. cit., p. 4. 114 But the 1910 Commission Report does not appear to have taken cognizance of the distinction, except in oblique reference. An example would be the conclusions of the college-SUpporting element reSpecting the desirability Of a residence system ("The average student learns as much from his fellow students as he does from his "69). professors. The locus for such residences is to be found in the colleges. Should the Colleges continue in close association with the University, they might and doubtless would, provide for a con- siderable number of students a Residence System of the very best kind, and thus save the University considerable expenditure on capital account."70 But whether the suggestion was prompted by an appreciation of the college ethos or more practical concerns of economy is not clear. The tendency not to differentiate between university and col- lege provides a useful means of approaching various Of the important aspects of the controversy during the period. The potential destruc- tion of the traditional position of the denominational colleges, by the prOposed 1911 bill, caused two Of the principal colleges to con- sider seriously secession from the University, and, in the case of wesley College, to request the Legislature "either that the Oppres- sive clauses in the proposed University Bill be changed, or that, as 691910 Commission, p. 79. 70Ibid. 115 a protection against them, the Legislature grant the College univer- sity powers."71 Significantly, the defense and attacks made with reSpect to the prOposal72 did not question the theoretical efficacy of the college's becoming a university, but dealt rather with the 71Wilson makes clear that the college wished such powers only as a last resort, and hOped that some accommodation could be reached that would permit it to remain an "integral" part of the University (”integral," of course, meaning reasonable safeguards for college autonomy and provision for the effec- tive and fair participation of the college in the larger institution. The college board, he noted, had reaffirmed its commitment to the principle of one degree-conferring body, in effect placing the onus for preservation of the principle on the Government and University, with its comment that it trusted "no policy" will be adOpted that will imperil (it)." It is interesting to note that, although wesley College in- sisted that the move was not meant as one Of blackmail, the public fervour that erupted over it testified to a basic assump- tion upon which the 1907 Commission had started: like it or not, the University needed the denominational colleges. "Should these Colleges be vested with the power of conferring degrees, and cease to be part Of the present University, and should they continue to be supported as they are now by a large majority of peOple of the denominations to which they belong, it is obvious that a strong State University would be practically an impossibility." (p. 36) The colleges were still in a strong bargaining position (com- pared to what was to be their future lot), and the settlement made with them in 1917 is almost certainly what the contemporary temper, unfiltered by history, would have produced. 72As the government neither acted on the prOposal, nor was pressed to by the college, it may be assumed that it was in effect a tactical manoeuver. Premier Roblin is reputed to have charac- terized the prOposal "skirmishing." Manitoba Free Press, 10 March 1911. practical disadvantages that would accrue from such a departure. 116 73 73 In what was seen to be the college interest, it was argued that the college would be in a position of having its reputa- tion based on independent competition with a provincial univer- sity (while, within the university, its reputation was in large part derived from its association with the latter); if the college assumed University reSponsibility, it would be com- pelled to Offer a much wider range of programs than would be necessary as long as it was a component of a larger institution. The latter argument was a telling one, because the significant endowments of the denominational colleges allowed them to compete effectively as affiliated arts colleges. Attempting to stretch the endowments to accommodate the breadth demanded of a modern university would, however, force a reduction in standards and a weakening of its competitive position. "Probably most of our denominational colleges have endowment enough to do effective work as theological schools; but it is safe to say that there is not a single denominational college in Canada wealthy enough to do effective work in all the de- partments of a real up-tO-date university." Most telling, however, was the threat that such even ineffec- tive competition would have on the provincial university it- self, in that contemporary context: "If a provincial university and two or three denominational institutions with university powers stand side by side, the supporters of the latter naturally feel that they have done their share toward the support of higher education when they have paid their subscriptions to their colleges, and they are unwilling to make a further contribution in the form of a tax for the maintenance of a state university. Knowing that this feeling exists among the people, governments naturally keep apprOpriations for the university at a minimum. The result is that the university finds itself in a position very similar to that of the denominational colleges. They will be hampered by lack of funds; so will it. They will be poorly equipped; so will it. They cannot procure the best professors, nor enough of them; neither can it. Their work cannot be of the broadest and highest type; that of the university cannot be much better. Their degrees do not command the fullest recognition; neither will those of a provincial university so hampered and crippled." Manitoba Free Press, 10 March 1911. 117 The fears were in large part generated by an interpretation of the eXperience of other Canadian provinces, particularly the Maritimes, where the granting of a right to financially weak denominations to establish universities, in the interest of "justice" was seen to have actually occasioned an injustice to the larger community. The col- leges effectively "hindered the progress and lowered the standard of higher education."74 And in a situation where the public was not yet fully convinced of the utility of higher education, and where the concept of support as a public trust was still only tenuously im- planted, the threat was quite probably a real one. But Significantly, the colleges are to be kept in the fold for economic reasons, and not through a recognition Of their inherent value. CONSEQUENCES OF THE COMMISSION Two longer-term consequences of the 1910 Commission Report were to be of particular significance in defining the position of the affilia- ted denominational colleges. These were to be the institution of the Office of President, and the bifurcation of the University government. PRESIDENT An office strongly endorsed by the Commission, the first Univer- sity President was appointed in 1913.75 The change this appointment occasioned in University government was without question to be one of 74Ibid. 75(In that year Dr. James A. MacLean, President of the University of Idaho, was appointed the University's first President.) The recommendation for the Office is one that appears in each of the sub-reports of the Commission, but is also one of the few to receive the endorsement of the full body. 1910 Commission, p. 35. 118 real benefit to the University system as a whole, affording a coherent 76 focus for change and development that the impractically large Coun- cil77 had not been able to provide.78 But the office would also modify Significantly the relationship of colleges to University The President became, in effect, head of the University component of the over-all institution,79 giving that element a self-consciousness and self- 76Something of the importance of the envisioned role is suggested by the following comment contained, interestingly, in the col- lege-supporters portion of the 1910 Commission's Report: "The order, peace, and indeed the whole Spirit and character of the institution are in his hands." Ibid., p. 68. 77cf. p. 128ff. for an examination of proposed restructuring. 78Baird, "History," p. 46. Indeed, it would seem from discussion within the Council that the very inability to arrive at a unanimity reSpecting the course of university develOpment (a result largely of the colleges' dif- fering views on university teaching) was seen as an important im- pulse for immediate appointment of a President "who should ad- vance the cause of the university." Manitoba Free Press, 16 February 1912. 79Some of the contemporary descriptions of the President's role seem implicitly to place him as a counterpart to the college heads. Manitoba Free Press, 22 February 1911. The Commission Report appeared to presuppose such a Situation by its suggestion that the President be an ex officio member of, among other bodies, the University Faculty (as distinct from the faculties of the affiliated colleges). 1910 Commission, p. 35. (At the same time, however, college-University relationships would have been facilitated on an informal level by the personal friendships between college leaders and the University President, as in the case of President Sidney Smith and Father Holland of St. Paul's College.) L. K. Shook, Catholic Post-Secondary Education in English-Speakigg Canada: A History (Toronto: University of Toronto Press, 1971), p. 320. 119 direction it had not had in its early years of teaching; in this capa- city he would thus accelerate deveIOpment of the duality, the "other” relationship between colleges and University, that had not existed in the earlier years of the University's life. In his role as academic administrator, he would have the capacity to shape, in large part, the nascent structuring Of what was as yet an amorphous institution;80 and the mode of develOpment Of the University faculties would have a fun- damental effect on the parallel develOpment of the college faculties, as well as defining, in evolving form, the roles they could and would play in the larger institution. One of the Commission's recommendations with reSpect to the of- fice (and again one from the College-supporters segment) was to have the effect of introducing another level (in addition to the also- recommended Board of Governors)81 between the University governing bodies and the colleges as corporate entities; the President was "to be the medium of communication between the University Senate or any University Faculty and the Board of Governors."82 The separation is 80The potential for affecting the develOpment of the University prOper is implicit in the recommendation, again of the college- supporters segment, that the President "be the Dean of all un- organized Faculties." 1910 Commission, p. 68. 8'cf. p.121. 821910 Commission, p. 35. 120 made yet more distinct in the President's executive role, in which he could be delegated various reSponsibilities defined as within the competence of the general governing bodies - the Senate and Board.83 The peculiar federal nature of the University and the corporate auto- nomy demanded by the colleges served to circumscribe the power of the office in its first few years. As Morton observes: "The President had been left by the Act of 1917 in the unusual position, in the light of North American usage, of being the academic, but not the executive, head of the university. It was customary for the president to sit at meetings of the board; though he had no vote in the proceedings."84 This anomaly was, however, removed by Board bylaw in 1921, when the President was declared chief executive officer of the University.85 The personal attitudes of the Presidents toward the place of denominational colleges in a university system were to be important determinants of subsequent deve10pments. Particularly significant, therefore, was their apparent hearty endorsation - after initial doubt - of the federal system. I confess that when I came to the University in 1934, I had some misgiving about the efficiency and value of a partnership in the field of higher education between State-supported and Church-supported faculties and colleges. I leave the University with a conviction that the partnership is a source of great strength to the University as a whole . . . . The system of affiliation in this institution affords that diversity in unity which is the very essence of democracy itself . . . . Unity differs from uniformity . . 83Fleney, Evolution, p. 73 84Morton, University, p. 113. 851bid. 121 The partnership which 1 have been describing has its problems, but there is not one problem in this regard that cannot be solved for the benefit of higher education by the exercise Of under- standing, gOOd-will, and co-Operation. The partnership is working admirably, not by resort to the letter of the University Act, but rather through an appreciation of its Spirit.8 Much the same sentiment was eXpressed on earlier occasions: "Variety in unity will be the source of strength for the University."87 The other Presidents were also to give expression to what they saw as mutually-satisfactory co-Operation.88 It seems fair to conclude, however, that the position Of Presi- dent was recommended and implemented without any clear conception of what the ultimate effects of the Office would be on the traditional structure of the University. In the words of a writer of the period: Very extensive duties and powers have been delegated to the President by the Council, but it is impossible to say, bearing in mind the past history of the University, that the Presidential office, and so the government of the University as distinct from that of the affiliated colleges, will reproduce the familiar American or Canadian type. BOARD OF GOVERNORS Perhaps the most important single factor in the defining of University-colleges relationship, and the one changing most radically the original nature Of the federal University, was the decision, 86President's Report, 1943-1944, p. 2. 87President's Report, 1936-1937, p. 1. 88President's Report, 1945-1946, p. 4. This was Dr. A. W. Trueman's first report as President. 89Fleney, Evolution, p. 74. 122 formalized in 1917,90 to divert the stream of University government into two channels, to use Morton's metaphor91 - the academic and the administrative. Certainly, in a period when provincial governments across the country were giving increased attention and SUpport to their tertiary educational institutions, the phenomenon Of establish- ment of a government-appointed lay board of plenary power in policy and administration was not an unusual one.92 Manitoba itself had a primary example in the constitution Of its Agricultural College93 903tatutes of Manitoba, 1917, Chapter 96. 91Morton, One University, p. 112. 92 . . . . Indeed, for many Viewers, the tranSition was little more than a coming into line with the other Canadian universities, "British Columbia, Alberta, Saskatchewan and Toronto . . . ." Canadian Annual Report, 1917, p. 738. 93Statutes of Manitoba, 1903, Chapter 1. Many of the powers granted to the Board by this Act were ones traditionally felt by the University per se to reside properly in the academic government. The statement Of general powers was as follows: "The board of directors shall have authority to regulate the conditions of admission to the college, to fix fees for tuition, board and lodging; to arrange the courses of study in each branch in which instruction is given; to regulate the conduct and work of students; diplomas, certi- ficates of proficiency, scholarships or other awards to be given after examination on each of the subjects; the sessions, terms and vacations in the said college; to appoint a prin- cipal and such professors, lecturers, instructors, Officers, assistants and servants as they may deem necessary for the efficient working of the college and the promotion of its usefulness, and to prescribe their reSpective duties and fix their salaries and wages . . . ." 123 which had been established on the principles of the American Land Grant College - principles that in the next decade would be seen by many as applying to the University itself. But in Manitoba the situa- tion was complicated by the original nature of the federal structure, and more so by the differing interpretations the constituent elements gave that original form. The University constitution of 1917 has been interpreted as "a major departure from the original constitution of the university in that the colleges ceased to be in effect federal members of the university and were made affiliates only.’ Alternately, the Council formed by the Act has been viewed as continuing to be "federal in character," in that it "retains for itself the direct and immediate supervision of alllfthe] portions of its traditional field of action which have not been given to the Faculties."94 The practical difficulties eXperienced in the Operation of the old Council meant that all parties supported some form of separation Of academic and business management "in order to render the Government of the University 'more efficient and less cumbersome'"9§ but again there arose that central question that had haunted the 1910 Commission: "whether the Denominational Colleges should have representation upon any Of the governing bodies of the University, and the extent and 9('Morton, One Universit , p. 10; Annual Report, 1922-1923, p. 13. 951910 Commission, p. 63. 124 character of that representation."96 For St. Boniface College parti- cularly, the notion of plenary control over form and policy of educa- tion by a secular body was complete anathema; in the words of a col- lege representative, Speaking to St. Boniface's intransignence in the discussions, during the first two decades Of the century, on the university's future: "The vital point had always been the board of governors . . . ."97 For the other affiliated colleges the principle of secular control was not as troublesome. But their vision of a Board was one deriving from considerations of efficiency; the large Council was simply not an effective tool. The college-SUpporting element of the 1910 Commission, therefore, when speaking of a Board of Governors, was willing to consider only a smaller, and hence more ef- ficient offshoot of the Council itself, as the administrative component of University government. (This was a notion which found support even from St. Boniface College.)98 Only such an arrangement could preserve intact the original constitution of the University; a Board of Cover- 99 TO nors in the more common sense would destroy it. avoid external 96Ibid., p. 64 97Manitoba Free Press, 16 February 1912. ggyigutes of the University Council, 8 February 1912, p. 277. 99"It has been suggested that . . . business and finance affairs should be managed by a Board of Governors, not composed Of mem- bers of the Council but outside Of it, not appointed by the Cor- poration but by the Government. The reasons against such a course are substantially the same as were assigned against the destruction or fundamental change of the Corporation. Such a course would be inconsistent with the genius and charac- ter of the incorporated federation; would be an interference with the integrity of the Corporation and its inalienable, or what should be its inalienable right of governing itself and managing its own affairs and prOperty, and would lead to poli- tical intrusion." 1910 Commission, p. 30. 125 interference in what had been an autonomous institution, the group recommended establishment, annually, of a committee, formed from members of the Council, called a "Board of Management."100 Although the Board would derive from the Council itself, the group was confi- dent that the colleges would be able, in choosing their representatives, to ensure that the Board would comprise persons competent in adminis- trative and financial matters, and be representative of the general population; to ensure prOper choice, it was prOposed that "the Colleges should be at liberty to suggest to the Council the persons whom they consider best qualified from among their representatives."101 The group was willing to exclude from this Board any members Of the teach- ing staff of an affiliated college (a sentiment to which wesley College had indicated itself to be amenable)102 - a departure from the practice of the Council itself. Importantly, the allotment of representatives would be parallel to that for the Council per 8e103 - an arrangement 100Ibid., p. 31. 1Olibid. loch. Wilson, Case; this provision was incorporated in the 1917 Act. Statutes of Manitoba, 1917, Cap. 96. 103"That one should be elected from among the representatives of each of the following colleges; that is to say, the four Arts Colleges, the Manitoba Agricultural College, the College of Physicians and Surgeons, any other College hereafter federated in the University under the provisions of the Act, which is entitled to as many representatives on the Council as one of the federated Arts Colleges; one from the representatives elec- ted by Convocation; the Minister of Education, and the members of the Council appointed by the Lieutenant-Governor-in-Council to represent educational interests in the Province." 1910 Commission, p. 31. 126 that would put the colleges in a distinctly minority position, and one that would continue shrinking.104 This could suggest that the colleges were indeed fighting for a principle other than that of ac- quiring and holding a controlling role; that, they conceded, had been lost, regardless of the course of subsequent deve10pment. The "compromise" and ”state University" supporters on the Com- mission argued for a Board of Governors more closely representing the North American state university norm; twelve "representative" citi— zens appOinted by the Government (the Lieutenant-Governor-in Council), exclusive of any members of the teaching staffs of either University or affiliated colleges, and reSponsible ”to manage all the business affairs of the University, to pass finally upon all matters of Univer- sity policy, to hear and determine all appeals, to enquire into and report Upon all matters connected with the University Administration and to make all necessary provision for the prOper support and good government of the University."105 104During the period in which the Commission Report was under pub- lic debate, the University Council was under continuing pressure from an increasing self-censcious University faculty to recognize, in the pattern of representation, the rapidly changing Size Of the group, relative to the colleges. In 1910, the Council eXpressed its appreciation of the gradual shift of power by recommending to the Legislature that the Faculty representation on the Coun- cil be increased from two to seven. Minutes Of the University Council, 7 April 1910, p. 55. 1051910 Commission, p. 64. 127 A basic departure from the nature of the Older federation is forecast also in the recommendation of both the compromise group and the state-University supporters on the Commission, that the Board of Governors be arbiter of the relations of the colleges and the Univer- sity, "on matters of policy and administrative detail."106 It is precisely this attitude that was to evoke feelings of "insecurity"107 in the colleges, as their status would, in such a situation, no longer have that statutory guarantee, afforded by the original constitution. The Board, as finally established in 1917, reflected the state- University sepporters' vision. Having plenary power over the academic regulations of the University as a whole, and over the administrative organization of the University faculties (though not over that of the 106Ibid., pp. 90-91. Among the functions Of the Board, as prOposed by the compromise group, were the following: "(n) To make arrangements with the Governing Body of any college or secondary school regarding instruction in University subjects, and to readjust or terminate such arrangements at their discretion. 7 (0) To receive into affiliation with the University any institution of higher learning. (p) To modify the terms Of any affiliation and to dissolve any existing or future affiliation for cause by and with the advice and consent of the Lieutenant-Governor- in-Council. (q) To receive and determine any appeal whether from any Affiliated College or other Academic Body." Ibid., p. 64 107cf. p. 56. 128 108 colleges), the Board was a lay body appointed by the provincial cabinet, and discrete in composition and functioning, from the Coun- cil itself.109 SENATE Morton sees the new Council, as established by the 1917 Act, symbolize not only the close of the colleges' political control of the university, but also of their academic suzerainty. Noting the defeat of the older language requirements by the new Council, he concludes that the decision . . marked the victory in education of the practical man over the chemical scholar; it symbolized the eclipse of the classical languages and the end of the old classical curriculum with its Splendid tradition of clear-cut, if narrow, competency, and its pursuit of disinterested excellence."11 Arguments concerning the composition and responsibilities of the prOposed Senate - the organ of University government that was to encompass the academic responsibilities of the Council - included points of basic contention parallel to those directed around the Board of Governors. What was being suggested by the state-University supporters was in effect that the colleges should have the "privilege" to teach, but loser. p. 253ff. 109Statutes oflManitoba, 1917, Cap. 96. 110Morton, One University, p. 120. 129 not to have a directing influence in the formation of the policy upon which that instruction is based. In the case of the Senate, however, the sentiment of the compromise group tended to the side of the col- lege group, and it was to be this sentiment that would prevail in the 1917 legislation.111 The policy of the former group in this matter was summarized as follows: We are of opinion the academic administration should fall in general, and particularly in the first instance, under the direc- tion of those actuall engaged in the work of instruction in University subjects.l{2 On the basis Of this principle, the compromise group put for- ward a proposed Senate that would be "composed for the most part of representatives chosen from the University Staff of Instruction and from the Instructional courses of the affiliated colleges "113 The principle was logically extended, in detail, toward representation in proportion to contribution to the instructional effort - a policy that would place the colleges in a minority position.114 But at the 111The proposal of the compromise group had the strong endorsation of the University Council, Appendix III contains an excerpt from the 1917 University Act, outlining the nature of the new Senate. Minutes of the University Council, 15 December 1910, p. 155. 1121910 Commission, p 63. 1131bid., p. 64. 11['The proposed memberhsip Of the Senate was as follows: "(a) The President of the University, who should be its presiding Officer. (b) The Chancellor of the University, who may preside in the absence of the President. 130 same time an important stance was taken in Specifying that affiliated theological colleges were equally entitled to Senate representation; that was no attempt to make the inclusion of the colleges more in- nocuous, to their Opponents, by defining their representation or en- titlement in terms of Arts "subgroups." With the Senate, as prOposed, the colleges would retain a vital role in the final decision-making process (subject to the plenary power of the Board) in those areas traditionally at the core of Council deli- berations: admissions, degree-granting, curriculum, instruction, examinations, defining the duties of students and instructors, deter- mining the academic standing Of all students. Perhaps equally impor- tant for the colleges, the general functions defined for the prOposed Senate would give the college an Official, albeit indirect,access to the Board - a privilege that would have been denied to them by the secularists. The compromise group eXpressed the view that "such a body would be indeed the most competent to advise the Board of Cover- nors, not only upon Academic matters in the narrower sense of the terms but also upon general questions Of University policy. The Senate might (c) Two representatives from each Faculty Of the University.... (d) Two representatives from each Affiliated Arts College. (e) Two representatives from the Medical College and two representatives from the Agricultural College. (f) One representative from each Affiliated Professional or Technical School or College. (g) One representative from the Elementary Section and one from the Secondary Section of the Manitoba Educational Association. (h) One representative from convocation other than the Chancellor. Ibid., p. 66. 131 even make suggestions to the Board of Governors regarding the appoint- 115 Two important areas of re- ment of any Official of the University. commendation are Specified: additional faculties, chairs, lecture- ships, and the standing of colleges applying for affiliation.116 The Opportunity to influence final decisions in these two areas would mean for the colleges the Opportunity to play a part in defining the subsequent course of university develOpment. The Senate prOposed by the college SUpporters was closely parallel in functions to that of the compromise group. The few minor differences are illustrative of the rather looser federation they wished to see perpetuated.117 Interestingly, too, there is roughly the same division between areas in which the Senate would have power to act and those in which it would have power to recommend; but the parallel becomes rather more tenuous when it is remembered that the Board of Management, to whom the college supporters' Senate would be reporting, would itself be an off-shoot of the Senate. No adversary situation would be anticipated in matters of final policy decision, 115Ibid. 1161616., p. 67. 117Two examples illustrate this tendency: "11. To arrange for and regulate inter-collegiate lectures; . . 13. To provide for the preparation and publication of the calendars which shall include those of federated Colleges, or such of them as may desire that their calendars shall be inserted therein. . . ." Ibid., p. 34. 132 even when the Senate cannot "revise the action of . . . the Board 118 The close when appointed and acting within the power conferred. harmony between the two components would be reinforced, in the college- sepporters' proposal, by retention of the Council as a third and en- compassing element in university government - in which the Senate and Board (which already physically had a common membership), would mesh at least twice a year in what would be an organically whole body, which in its turn could, from its unique perSpective, recommend to each of the Senate and Board.119 As the college-supporters were recommending a Senate with essen- tially the same composition as that of the old Council, it is not sur- prising that they suggest that most of the Senate's work would be dele- gated to committees. What appears implicit in this suggestion is a Senate that is not a policy-initiating body per se, but one ratifying the work of smaller bodies that would continue to be, as in the past, college-dominated. The committee-structure of the old Council was, to this extent, a model of a looser and much more decentralized govern- ment than was envisioned by either of the other groups.120 1181616. 1191bid., p. 35. 120The contrast is illustrated by a newSpaper comment which compares the Senate included in the Legislature's draft 1911 bill to the older Board of Studies, which had been characterized by the im- mediacy and detail of its examination and administration of aca- demic detail. This close scrutiny was, for the compromise and state-University supporters, to be the new role of the Senate per se, and less that of the academic staff itself. Manitoba Free Press, 22 February 1911. 133 FACULTY COUNCILS The 1910 Commission report gave impulse as well to a tendency apparent since the inception of University instruction - the develOp- ment of a self-conscious University faculty. The structuring of the University teaching component into structured faculties under deans (a system finally approved by the Board of Governors in 1921, to add thereby two new faculties, Arts and Science and Engineering to the already-existing Faculty of Medi- cine) was to give birth to "the basic institutional framework of the interior economy of the University . . . which has since been altered "121 While this structure gave them substantially only by addition. a quasi-college nature (a nature which became the basis of their in- stitutional relationship with the colleges), the concomitant forma- tion of the General Faculty - the conjoint body of faculties pre- 122 - gave institutional formalization t0 sided over by the President the dichotomy of University and colleges. The growth of the University teaching component and its concomi- tant, the increasing self-consciousness of that component, gave rise to another basic shift in University-college relationship, occasioned by the deve10pment of university faculties. Shortly after the esta- blishing of the six University science chairs, provision was made in 121Morton, One University, p. 122; Baird, "History," p. 48. 122The growing self-consciousness of the University faculty is illustrated in its prOposal of 1921 for the formation of a General Faculty Council for the University prOper, and indivi- dual Faculty Councils for each of the University components. Minutes of the University Council, 20 January 1921, pp. 123-126. 134 the University Act for two representatives of this group to Sit on the Council; but for some time it found itself almost exempt from the important vehicles of university government, the powerful central committees dominated by the colleges.123 Their position was one that received a good deal of consideration during the constitutional con- troversies of the first decade of the century, with all three compon- ents of the 1910 Commission putting forward prOposals on the matter. The Commission, as a whole, enamoured as it was of the Toronto model, was able to reach a consensus in recommending the institution of a faculty council system.124 The college supporters, in their vision of a federation of virtually autonomous units, appeared to support a notion of a faculty council that in effect would be the government of individual and discrete colleges, not the vehicle for interrelation- ship;125 at the Opposite pole, the state-University supporters suggested 126 In neither case, however, does there ap- much the same organization. pear an advocation of a "University" faculty per se; the faculties envisioned are disciplinary in nature. Yet the prOposed new Act of 1911, as formulated by the Govern- ment, deriving in part from the Commission report but extending an 123As late as 1910, the University faculty was arguing for re- presentation on the finance committee (". . . it being not just to them or to their work not to be so represented.") Manitoba Free Press, 9 December 1910; Winnipeg Telegram, 9 December 1910. 12"’1910 Commission, p. 35. 1251616., p. 75. 126Ibid., p. 91. 135 important step beyond it, did in effect recommend such a creation: 14. Individual Faculty Councils: There shall be a series of Faculty Councils, each one of which shall consist of all the members of a particular Faculty whose appointment is for more than one year. Each Faculty Council shall have power to elect its own presiding officer or Dean who shall assist the President in management and discipline. The President shall be the Dean of all unorganized Faculties. Each Faculty Council shall have power to transmit to the Senate its own programme of studies, together with any other suggestions regarding the work of that particular Faculty. It shall have power to make regulations governing its own proceedings and the right also to offer through its presiding officer any suggestions to the President for his information and guidance. 15. The University Faculty Council A meeting of all the Faculty Councils shall constitute the University Faculty Council, and this body shall have power to make representations either to the Senate or to the Board of Governors regarding any matter af- fecting the interests of the University . . . .127 As a new element in the University Government, and as one the consequences of which could only be hypothesized, the faculty councils were subject to a wide variance of interpretation. For the colleges it raised the Spectre of the University Faculty of Arts and Science 127Revised Statutes of Manitoba, 1911, Chapter 171, cited in Minutes of the University_Council, 26 January 1911, p. 175. 136 assuming de facto the older roles of the Board of Studies and Com- mittees of Examiners (which had been dominated by the Colleges), and with their power of direct recommendation to the Senate, would isolate the colleges entirely from a meaningful input to academic decision- making. Even the colleges' representation on the Senate would have little effect, for experience with its predecessor, the Council, had shown that practical considerations of workload would make the com- mittees the locus of real power. Thus, "in practice, in so far as the details of academic administration are concerned, the volume of work would compel the Senate to confine itself to mere formal approval of the recommendations submitted by the faculty councils."128 In practice this would mean that the colleges would become passive receivers of University dicta, and suffer the academic devitalization that such a role would occasion. TO turn to the faculty councils, the bodies that arrange texts and courses and practically control examinations, only teachers paid by the state are members of these councils, the affiliated colleges being absolutely without representation. In other words, a University lecturer, a mere boy, it may be, just out of college, can arrange texts and courses to suit himself; a college professor, possibly a doctor of philOSOphy and a man of some educational ex- perience, probably the intellectual equal of this Stripling - yes, it may even be, the equal of a University professor - must teach what this boy prescribes. How could any college secure and keep men of first-rate ability under such humiliating conditions? 18 this the way to induce them to build up a strong staff? Is this . . . competition on fair terms . . . .?129 lzaWinnipeg Telegram, 18 February 1911. 129Wilson, Case, p. 10. 137 The fears were dismissed lightly by a supporter of the new form of government, but on grounds that Wilson has considered and found unsatisfactory - the argument that the faculty council would have only power of recommendation, with final power of decision res- ting with the Senate and Board.130 Interestingly, this interpreta- tion was shared in by the more extreme secularist, "Manitoba First,”131 who discovered in the new machinery the answer to what he saw to be the basic dilemma of university government - how to allow the colleges an apprOpriate role without permitting them an influence in management per se. If allowed representation on advisory faculty councils, the colleges would have a recommending voice in instructional policy - which was all they should be interested in - while final decision on all matters would be, and prOperly so, in secular hands.132 In point of fact, the University Faculty Council, when finally instituted by the 1917 Bill did not in its early years occasion any Significant shift in real power. Indeed, a contemporary commentator re-echoes the older complaint that the University was not holding even prOportionate influence. It is hardly a controversial statement to say that the Univer- sity faculty's powers and responsibilities in academic affairs, though more than quintupled since its foundation a decade ago, have not as yet increased in anything like prOportion to its num- bers and status. 130Manitoba Free Press, 20 February 1911. 131Manitoba Free Presé, 22 February 1911' 132Manitoba Free Press, 3 March 1911. 133Flenev. Western Canadian University, p. 74. 138 Thus the formalization of the University faculty, like the constitution of the new Senate, laid a foundation for significant potential diminution of college influence. But in point of fact, the form the two took - reflecting a compromise between the tradi- tional college system and the vision of the state-University prOpo- nents - allowed the perpetuation of a strong college presence and an active role both in academic policy-making and in the detailed adminis- tration of that policy. The statists had been successful in creating a secular lay Board of Governors; in this reSpect Manitoba was reflec- ting the Midwestern model. But in the internal Operation of the in- stitution, the reality of a participatory federation had been main- tained. CHAPTER V I THE SITE QUESTION The decision to restructure the University as a teaching body brought to the fore a question that had never before been a particu- larly burning one, but one that had in fact been growing during the last two decades of the Nineteenth Century as the burden of eXpanding responsibilities and expectations had begun to weigh on the colleges, and the first tentative efforts toward cOOperation had begun. This was the question of site. The tie to a community constituency, a principal raison d'gtre for the colleges, was not compatible with the grouping and pooling of resources that an increased academic reSponsi- bility was calling for. The decisions the individual colleges were to make on weighting the two sides of the scale were to determine in a very significant way the course or their subsequent deve10pment. It was unlikely, of course, that any site chosen for University buildings would satisfy all of the colleges. Two were located in the central part of the City - Manitoba and Wesley. One was located some three miles distant, a significant trek in the period - St. John's, which continued to reside near the Kildonan settlement that had given it birth. The fourth, St. Boniface, was in effect in another city, of the same name. But as the institution of a teaching University would depend on the Provincial Government, particularly for the exten- sive initial capital expenditures, the real siting choice was in large part outside of the Council's hands. Partly as a result of the Government's vision of the Provincial University's assuming a more 139 140 central role and position in the province, it made the offer of a site in close juxtaposition to the central government buildings - the Broadway site. The reactions of the colleges were predictable. Manitoba and Wesley colleges were close enough that they had no com- plaint. St. Boniface College, even with its intention not to use the central facilities of a University, objected to the geographical separation. St. John's College was the institution most affected, and the fervid plea it put before the Council, through the agency of its Chancellor, the ArchbishOp of Rupert's Land, bore testimony to the significance the matter of Siting would have for both the colleges and the university: As bishOp of the Church Of England Diocese of Rupert's Land and Warden or St. John's College, I desire to enter the strongest protest against the selection of the prOposed site for university buildings and the eXpenditure or funds of the university or public money upon buildings or professorships, if that site is adapted. The ground on which I enter this protest is that as the site is an extreme part of the city - three miles from St. John's college - it will oblige that college to make as little use of university teaching as possible and gradually to supply a staff. This will not only be a great inconvenience and loss to the college, but will also affect the interest in the university of the devoted members of one of the largest denominations in the country and may ultimately seriously affect the support, which the university will need. I consider that a central site is above all things the first ob- ject to be kept in view and that no pecuniary consideration such as the offer of a free site should be allowed to interfere with this. In making this protest I do it as having the interests of the university at heart and as one who would rejoice if the university buildings were equitably and favourably placed, at whatever would strengthen the position and tuition of the university. If the prOposed site is selected, it will be for the present a disappointment to myself and the college I preside over, as we have looked for early help in a university professoriate; but the result will be a permanent weakness for the university. 141 Buildings and funds will grow up about the university and also about St. John's College, and every year will make it more diffi- cult to have that united action which is so desirable and has hitherto been so steadily kept in view. I beg to add the following resolution which was unanimously adOpted by the diocesan synod of Rupert's Land: 'In the choice of a site for a university building it is most essential that the interests of all the affiliated colleges be considered. Only thus will the purposes for which the university was formed be fulfilled and all the elements, that constitute the university, be maintained in loyal attachment to it.'L The position of the college was clear. Inconvenient siting would be a breach of trust "inasmuch as the University of Manitoba was founded for the benefit of all classes and denominations, and disruptive to the "unity of the University."2 But it is a unity of a different sort that is being discussed now. For the colleges were anticipating a situation where they could define a portion of the University Arts pro- gram which they could comfortably support, leaving the "University" to balance the full offerings. But such would be possible only.if the University were physically convenient to the college students.3 The Council finally decided to accept the Government's offer, in November of the same year, but only after a very close vote of 15 to 14.4 1Minutesgfthe University Council, 1 September 1898, pp. 568-9. 21bid., 27 October 1898, p. 571. 3Ibid. These points formed the basis of an Official protest from the St. John's College Council, presented to the University Council meeting of 27 October. 4A. B. Baird, "The History of the university of Manitoba," in _Manitoba Essays, ed. by R. C. Lodge (Toronto: The Macmillan Company of Canada Ltd., 1937), p. 43. 142 St. John's College students were able to be accommodated through an arrangement whereby the university undertook to pay their carfare to and from the central campus.5 But the choice had precipitated for one of the colleges the difficult choice they had to face - between closer interdigitation and historical locus. St. John's was to Opt for the former. Only uncertainty, during the next three decades, as to the final site of the University prevented her from building on a piece of prOperty she purchased directly Opposite the Broadway Site.6 And ultimately she was to be one of the two colleges to move to the Fort Garry site of the University, and later to enter what was virtually a constituent relationship within that institution. The Broadway Site soon proved inadequate in size to accommo- date the teaching responsibilities of the University, so the question of Site came to the fore again in 1907, when a private develOper offered a tract of land in the Tuxedo Park area Of the city. The site was removed from proximity to either the Broadway site of the Univer- sity or to that of any of the colleges. Importantly, however, it was in close juxtaposition to the Government-supported and controlled Agricultural College. Though neither the Government, the University, nor the Agricultural College was sure of the desirability of close integration of the two institutions, the question was to extend through two decades and a Royal Commission, and in outcome was to affect significantly the course of deve10pment of the University, and of the colleges within it. 5Morton, One Universit , p. 52. 6w. J. Fraser, St. John's College, Winnipeg, 1866-1966: A History ofgthe Past Hundred Years of the College (Winnipeg: The Wellingford Press, 1966), p. 43. 143 The colleges were queried as to "what they would be willing to 7 ReSponses do in the event of the University obtaining a new site." were received and filed? but no debate on their content took place in the Council itself. A Site committee, struck by the Council to consider the matter, reported twice, gradually evolving an arrangement that met with the tacit agreement of all but St. Boniface College.9 Sites of "not less than five or more than ten acres" were to be donated out of the land grant to the colleges which undertook to build on them. The independence of the colleges was carefully guaranteed by an amend- ment to the prOposed agreement that would make the sites "free from any conditions or restrictions whatsoever." Additionally, a clause was included in the agreement that would protect the college sites, once granted, in the event that a default on the part of the University caused the bulk of the grant to revert to the developer.10 The willing- ness on the part of the Protestant colleges was in part due probably to their readiness, at the time, to move or expand their existing pro- perties to accommodate the rising enrolments they were facing. 7Minutes of the University Council, 10 June 1907, p. 336. 8Ibid., 10 October 1907, p. 336. 9When the Council finally voted on the matter, on 19 June 1912, ‘viz., "That the University proceed forthwith to erect a building upon the new Site at Tuxedo Park . . .," The motion passed by a vote of 17 to 7 with two representatives of St. Boniface College and one of St. John's College asking that their Opposing votes be recorded. Minutes of the University,Council, 19 June 1912, pp. 345-346. 19;g;g., 6 October 1910, p. 127; 7 October 1910, p. 137. 144 Hesitant to eXpand on their existing Sites when the future location of the University was still in doubt, the colleges would have greeted the finalizing of that latter question, as permitting them, for the first time since the question of University teaching was broached, to consider their own long-term planning. In voting for the Tuxedo Park site, the Council was acting.gg§ Council and not as the aggregate of college representatives. No com- mitment had been made by any of the colleges as corporate entities. In July of 1912 the Council prepared a letter to be sent to the college boards explaining its intention to build permanently on the Tuxedo Park site and to transfer there "some or all branches now undertaken by the University . . . by September 1914, or September 1915, at the latest."11 The college boards were asked to indicate whether they wished to enter- tain the offer of a site on the proposed campus. Significantly, St. Boniface College, the institution least eXpected to endorse the pro- posal Of a common site, submitted an inquiry about the terms of the offer.12 But the fragile concurrence was not permitted to find concrete form. On 8 January 1913, the Council considered a letter from Sir Rodmond P. Roblin, Premier of the Province, who advised: . . . that the Government believes that it is in the best interests not only of the students who may attend from time to time, but the University itself, that the present, i.e., Broadway site, enlarged from time to time as its growth may demand, is the prOper location for a permanent University. 3 111bid., 4 July 1912, p. 352. lflbig., 12 December 1912, p. 393. 131bid., 4 July 1912, p. 356. 145 In large part the statement could be interpreted as a reluctance to commit a second Significant capital outlay to initiate a new Univer— sity complex. The reluctance, the Council realized, could only be overcome by a demonstration that establishment of the new site would be patently useful in the eyes of the Government. To this end it formulated a site rationale which borrowed significantly from the state university theory and which would, if actually instituted, redefine the federal university and the part the colleges could play within it.- In- corporating the theory into a motion, the Council passed the following resolution: That the question of a suitable Site for the University has for several years engaged the earnest attention of the University Council, and in all deliberations, two considerations were held to be essential: the first, that the site should be sufficiently large to meet not only the deve10pment that will naturally follow the growth of the Province and the increase of pOpulation, but the larger develOpment that will eventually accompany the progress of the idea that a modern university is an important arm of the public service and must minister to the commercial and industrial as well as the intellectual life of the community; the second, that it should be so situated that it might conveniently interchange service and COOperate with the other leading agencies for higher education in the Province.14 The rhetoric struck a reSponsive chord. A "Special Committee appointed to confer with the Premier of the Province on the matter of the University site" was able to report that "the Premier is prepared to consider favorably the provision of a permanent site for the Univer- sity complying with the conditions mentioned in the resolution . ."15 1“Ibid., 8 January 1913, p. 3. 151bid., 15 January 1913, p. 10. 146 But the resolution had in effect disqualified the Tuxedo Park Site. During the extended site debate, the Manitoba Agricultural Col- lege had moved to a large area provided for it in the St. Vital portion of the city. In this light the same Special Committee recommended: that the Council respectfully ask the Government to convey to the University the tract of land at St. Vital lying between the Agricultural College grounds at the Red River, and containing approximately 137 acres, to be used as a permanent University site, with the understanding that provision shall be made on such land for sites for the affiliated colleges in the same manner as was 16 stipulated in connection with the prOposed site in Tuxedo Park . . . This motion was approved by the Council, and in October of the same year it accepted a draft lease to the St. Vital site, which con- tained detailed provision for the allocation of sites to affiliated colleges.17 But the advent of war and the financial dislocation of the years following prevented any carrying through of the agreement, and by the mid-twenties, when serious consideration of a move could again be entertained, the fragile consensus had been broken and the principles once agreed upon had to be considered anew. So vital was the central question of interdigitation with the Agricultural College that the Government was moved in 1924 to strike a Royal Commission to 16Ibid. ". . . a site of not less than 3 or more than 7 acres as may be determined by the University of Manitoba and the Lieutenant Governor-in-Council may be granted, conveyed or leased out of the lands hereinbefore described to each college now or herein- after affiliated with the University as a college site, on such terms and conditions as may be agreed upon between the Univer— sity Of Manitoba and each such college and approved by the Lieutenant Governor-in-Council." lfiggg., 2 October 1913, p. 56. 147 recommend on the broad question of site. The Commission, unlike its counterpart of 1907, tended to be rather more unanimous in its Observa- tions and recommendations, and its conclusions were to have a signifi- cant molding influence On the University's future. The Commission was obviously infused with a vision of unity, foreseeing a large campus on which "affiliated colleges, playing fields, and buildings, serving the physical and social life of the students, can find ample room in close association with the centre of university life."18 And this desired unity overrode in its eyes any of the historical advan- tages which had initially occasioned the geographical separation; this separation was now viewed entirely in a negative light. It would be difficult to scatter the work of a university more effectually over a large city, if the object were to disintegrate and destroy the senSe of unity and prevent efficient and close co- Operation. The University has neither campus, playing fields, nor buildings for gymnasium, rink, students' residences, students' union, library or assembly hall, where the students in the dif- ferent faculties may meet, live, work and play together. With so many obstacles to close co-operation, and a past history of divided interests, it is remarkable how the University has been able to develOp and preserve any sense of unity.19 The quest for "unity of spirit and loyalty" had not historically been a strong impulse in the University, with much of the Spirit nor- mally generated in an educational institution purposely channelled in- wardly by the federated colleges. University Spirit as a goal grew more as a part of the state-university thrust following the turn or the 18Report of the Commission on the Possibility of Re-adjusting the Relations of the Institutions of Higher Learning (1924), p. 11. 191bid., p. 9. 148 century, and had the intended effect of homogenizing the "college ex- perience" -- college purpose within a university became the new emphaSis of the planners, and the peculiar emphases of the individual colleges, with the exception perhaps of St. Boniface, came to assume a secondary role, concerned. as far as the central purpose or the university was But the CounCil had signaled its support for the second notion of "unity" -- the interconnecting of the various agencies of higher education in the interests of economy and service to the state. The logical extrapolation of that position was found by the Commission in its recommendation that the University and the Agricultural College be amalgamated. . . . savings in money are not the greatest or most important benefits that well-being of forces of the that threaten will generate will follow the union of these two agencies for the the people. Union will combine the intellectual sciences and agriculture in attacks upon the problems the very existence of successful agriculture, and it an atmosphere of mutual understanding and good-will between the boys from the country and from the town that will unite them in a way of the nation humanity.20 that will hold throughout life, and bind the leaders in a brotherhood of service to their country and to In furtherance or this general principle, the Commission in- cluded, among its Specific observations and prOposals, the following: . . that the affiliated colleges will in time find sites of great beauty and attractiveness on or adjacent to the St. Vital campus in close association with the College and the University, where they will be in contact with every phase of the life of the province, rural as well as urban. 20Ibid., p. 34. 149 that the University can transfer the major part of its activities from Broadway to St. Vital gradually beginning with those schools which are more detachable, such as Pharmacy and Engineering, and the more highly-Specialized departments, leaving the work or the first and possibly of the second year in Arts to be done on the Broadway site. . that better than casual suggestions for the carrying out of a policy of co-Operation is unity of control and management, inSpired by a spirit of good-will and understanding, devoted to the service of the province without regard to the peculiar needs of any class, persons or places. Several important implications are implicit in the comments. Of primary importance is a consideration raised by Dr. wm. S. Learned who prepared, on behalf of the Carnegie Foundation for the Advancement Of Teaching, a memorandum on the university question, which was submitted to the Commission on 27 November 1923.22 Quite bluntly, Dr. Learned stated that ". . . the part played by the colleges in the life of the present University is relatively insignificant . . . . In other words, the University has waxed strong while the collegiate influence, which 21ibid., p. 34-35. 22The memorandum appeared as an appendix to the Commission Report, with the following comment of the Commission: "The Commission had drafted its report before that of the Foun- dation had been received, and, though there is much in the re- port of the Commission that had been authoritatively dealt with by Dr. Learned, the CommiSSion decided to let its report stand, thus giving the public the benefit of different and independent judgments on the issues involved." Ibid., p. 7. 150 was dominant at first, has dwindled or ceased altogether."23 Certainly the political leadership of the colleges -- except, of course, for the fortuitous power derived from influential representatives -- was effec- tually at an end. They would no longer define the course of university develOpment. Subsequent revisions to the University Act would endorse Dr. Learned's assessment that the "present representation of eight col- legiate members out of 27 in the University CounCil is quite out of pro- portion to the weight of this factor in the institution as a whole."24 But the very weakness of'the colleges, and the absurdity of seeing them any longer as institutional competitors with the University prOper, allowed a change in perspective that could envision the colleges 23"St. John's College now makes a comparatively small numerical contribution to the University: 24 students registered in arts and science in 1923-1924 receive all their instruction at the College and 12 do part or their work at the College and part at the University. The distance between the two institutions is such as to make intimate relations difficult. "Manitoba College, in 1914, gave up most of its instruction in arts in favor of the then full-grown University. Such courses as it retains are more or less closely connected with its curricula in theOIOgy or for deaconesses and social workers. It still conducts its residence. This accommOdates about 50 men and 25 women, most of whom attend the University. "(wesley College] all instructions in sciences, except an elementary theoretical course, is given at the University. During the present year Wesley College instructs 64 students in all subjects except the laboratory work of the first two years, while 88 students take part of their work at wesley and part at the University. ". . . out of 1,182 students receiving any arts or science in- struction in the University this year, just 100 are attached to any of the colleges, although the University examinations will reach 136 other College students." Ibid., "Memorandum, p. 59. 2“Ibid. 151 performing a unique and complementary function. As "arts" components the colleges were no longer needed -- their disappearance could reason- ably quickly be balanced by the university -- a situation different from that at the turn of the century. But other aSpects of their con- tribution began to become apparent with the final disappearance of the red herring of instruction. . . . although the nature of the relationship changes, it is indubitable that the colleges as a group have it in their power to make a contribution to the breadth and success of the University movement that it can ill do without, and can command from no other source. That this newer function has not as yet develOped is one of the many damages for which the long delay in fixing the permanent home of the University is responsible. In envisioning a common campus, the 1924 Commission was antici- pating such a "newer function." Quite Obviously the academic leader- ship was to be in the hands of the sciences and professional faculties -- areas that most typified the state university orientation and that col- lectively dominated its council. The university was thus to supply the "intellectual unity" endorsed by the Commission. It was not equipped, however, to answer the parallel demand for unity in citizenship and principle. This was to be the task of the residential college. And ideally the two units should grow conjointly. This would be the task of the joint campus. The older concepts of University-college relation- ship were no longer acceptable models. A new relationship was not to be 25Ibid. 152 either competition or co-Operation in the older senses that implied parallel tasks; it was to be something more of a symbiosis: The essence of the new relationship, as suggested by the rapidly—changing conditions of collegiate and University life during the past quarter century, will inhere in certain recip- rocal duties and services that promise to bind College and Univer- sity more closely together than has hitherto been the case. The College, in the discharge of the obligations to its supporters, is anxious to issue to its members educational advantages in all fields, advantages wnich the isolated denominational College finds hOpelessly beyond its reach. In addition, however, to this basic intellectual Opportunity, the College believes, and in many cases has proved, that it can maintain for its students an environment that fosters clean living, intimate and wholesome associations, and the growth of an intelligent and convincing moral purpose in intellectual affairs.26 Quite consciously Dr. Learned was emphasizing the English col- lege model, as an answer to the social vacuum created within the growing University, that would otherwise be filled by less satisfac- tory reSponseS, as he had seen develOp in the United States.27 The English college had, of course, been a major model in its form of cur- riculum, examination, etc., for the Protestant colleges, and particularly St. John's. But these had still been primarily denominational colleges, with a religious impulse their focus. Secondly, they had not been 26Ibid., p. 60. 27"In the United States, colleges and universities have grown from small to large and from large to huge, with no apparent means of segregating coherent groups of their students for separate organization in a Significant manner. Greek letter fraternities and social clubs have rushed in with divisive and distracting effect. In some respects good, in others, very bad, such a remedy is not a successful substitute for the small English college and its interior associations and loyalties, its discipline and obligations." Ibid. 153 structured to operate within a university system, but rather to be more or less self-contained. The new purpose envisioned for them would thus entail change. The colleges would remain denominational but the more secular collegiate orientatioh would have to assume a 28 In point of fact, it would seem that priority over the religious. the religious emphasis had for some time been a minor aSpect of the college eXperience of many of the students. Significantly, there is no suggestion that the colleges should be made secular per se, or that secular colleges be the basis of sub- sequent collegiate deve10pment. Learned is, for example, unhappy at the suggestion (which soon became a reality) that Manitoba and Wesley Colleges would amalgamate. "Regardless of church union it would be reasonable for each to retain its identity and develop as a separate unit."29 He seems willing, then, to endorse a continuation of the function that the colleges had traditionally served in the Province - perpetuation of ethnic/religious identity within the mainstream of a state educational system. Probably reacting to the extended contro- versy between the French- and English-speaking Catholics, for example, Learned comments: "If possible other groups might well be added - perhaps an "30 English-Speaking Catholic College. But what is made impossible by 28"The College is not religiously narrow. It admits students of any faith or of none. Its chief concern is to maintain the positive integrity and sincerity of its emphasis upon the quality of human character." Ibid. 29Ibid. 3°ibid. 154 the new definition of college purpose, (and what had through practical considerations, been increaSingly recognized by the colleges themselves as no longer possible, through the course of the long university siting problem) was the geographical link with constituencies. Learned is quite blunt: "It is a sine qua non of a wholly successful collegiate organization of this type that it be situated on the University campus in order that at every turn it may feel its complicity in the organism of which it is a member."31 The words proved to be prOphetic -- the urban college that chose to remain geographically separate from the central campus was destined to lose progressively its "college" charac- ter and finally become a rival university. Yet, while the college was to be in the University, it was not to be completely of it; ". . . it should possess its own area or quad- rangle, where its residences, common, chapel and class rooms may give the effect of separate corporate existence."32 And within this separate corporate existence, the instructor was to assume a nature and function different in kind from that of the university instructor. Again, this was a matter of ambiguity in the earlier period of University-college competition, when the college instructors were, in theory, counterparts or the emergent University professoriate -- although prevented by the nature of their situation from realistic competition (and hence their academic denigration from the perspective of the Uhiversity staff). 311bid. 321bid. 155 But the new college purpose would: require certain prerogatives in the direction and control of its student body and the presence of a group of highly educated, fine-Spirited men who take a somewhat broader view of their reSponsibilities to their students than does the average university professor. Though they do not necessarily all live together, these students and teachers develop an in- timate community of collegiate interests, they count on doing many things together, and when conditions are right they seek from one another the interpretations and solutions that uni- versity activities relentlessly exact from the Open-minded student.33 But as important as the function of the tutor was,34 Learned was not in favour of having that role as the only academic function per- formed by the college. Manitoba College had attempted that, with res- pect to its Arts component, and had suffered the academic disreSpect of even its close ally, Wesley College. To maintain the colleges scholarly link with the University, then, Learned emphasizes the impor- tance of a college's "maintaining on its own foundation a small group of recognized University teachers . . . ."35 Coupled with the principle of scholarly integration, however, is the Older argument of economy: the University, still not the recipient of governmental largess, would 33"Not only in assisting the weak, but in affording congenial guidance to gifted students, the able teacher in this position is the mainstay of student morale." 34Ibid. 351bid. 156 benefit from the "free" use of competent college instructors.3b As a corollary, of course, would be the notion that the pooling of re- sources on a central campus would allow the colleges to concentrate resources on areas of excellence -- something that geographical iso- lation had made impossible, except in the limited co-Operation of Manitoba and Wesley Colleges. The Spirit of "efficiencyfl a legacy of the state-University concepts, was very much alive in both the Commission's Report and Dr. Learned's Memorandum. Hence the vision of a much closer coordination and rationalization than the strongly intrenched Spirit of autonomy, on the part of the colleges, would permit for some four decades: It would be necessary to insist on certain common standards of training, status, salary, and so forth, in collegiate faculties, and in the interests of economy the University might well advise as to departments in which collegiate appointments should be made. Its approval should, of course, be required for any appointee giving instruction outside of any one college. All such regula- tions, however, is only that with which any co-Operating College would reasonably expect to comply.37 36"Simple economy would suggest that exceptionally capable teachers in one College be accessible to other Colleges and to the Univer- sity on terms of free inter-change. The reputation of a College would hinge upon the number of superior men it could support, hence the private endowment might eventually contribute a large share of the teaching strength of the University. Such endow- ments are Open to steady and large increase as University endow- ments are not. To give the Colleges generous opportunity for free and vigorous careers would, therefore, be a policy not only of far-sighted educational wisdom but of good finance as well." Ibid., p. 61. 37Ibid. 157 The colleges were not "unreasonable" as corporate entities, but they had made clear during the controversy surrounding the 1910 Commis- sion Report, that they were not ready to accept the University as an impartial arbiter. Somewhat ironically, too, the prolongation Of the site question had increased the individualism and Spirit of indepen- dence in the colleges.38 The Provincial Government did not act immediately on the Com- mission's Report. A Special committee to study the Site question was struck by the Legislature in 1929.39 This committee heard the posi- tions of the individual colleges on the Commission's recommendation that the University site be moved to St. Vital. Predictably, St. John's College, which had already made provision for a site near the old Broadway location, and which saw the move to St. Vital as being yet a further separation from its original constituency, expressed its pre- ference for the original site, although indicating its intention to move to whatever site was finally selected. What were then the United Colleges (Wesley and Manitoba) had no preference, and also expressed the intention of joining the central campus when such a move was eco- nomically feasible. With the financial exigencies of the Province in 1929 in mind, and in the light of the expressed attitudes of the col- 1eges, the Committee recommended in November of that year "that the 38Fraser,_g_p. cit., p. 50. 14 39The following paragraph draws on Morton, One University, pp. 2-143. 158 new University buildings be at the Agricultural College site and that it together with the facilities provided by the present buildings situated thereon be used for instruction in the senior years of the University and instruction in the junior years be continued in the buildings situate on the present Broadway site."z'O On the surface, the recommendation probably appeared an inno- cent economic response. The colleges did not feel a strong associa- tion with the professional faculties, and were themselves, as was the Government, in a financial Situation that would make a staggered move not unwelcome. And historically the colleges had, since the develOp- ment of the teaching University, voluntarily limited themselves largely to Junior Division level work (i.e., First and Second Years). Yet the 41 which vir- closely following Depression, and during it, defalcations tually bankrupted the University and St. John's College, delayed for more than two decades any practical possibility of the colleges' moving to the Fort Garry42 site. The colleges could no longer easily “01bid., p. 142. 41"The warden of the College looked forward to relocating St. John's on the new University site when the depressed condi- tions of the economy improved enough to allow him to raise a building fund . . . . News of the defalcations, however, was to make survival, not advancement, the prime concern of the College." Fraser, 92. cit., p. 51. thith the restructuring of Winnipeg municipalities, the area in which the University site was located was no longer a part of St. Vital, and was renamed Fort Garry. 159 interact with the senior division component of the University Arts program,43 and would have the choice of becoming, virtually, junior colleges -- feeders to a distant campus. Or they could attempt again to compete with the University on the full lprogram. They proved un- willing to forfeit what they saw as the advantages to staff and stu- dents Of having a full college prOgram Offered as an organic whole; as colleges, also, they desired the secondary benefits to the student of continuous membership through the course of his University career. Hence they chose the course of competition. And, as Morton suggests: . . . the effect of the resultant competition for students and duplication of personnel could only be harmful to the arts departments in both university and colleges and to the subjects they taught. The 'plight of the humanities,‘ already severe in a world fascinated by science and even more utilitarian, was to be made worse in Manitoba by the division of Arts between the denominational colleges and the provincial university.44 Perhaps the most important consequence of the extended separa- tion and physical impediment to the unity advocated by the 1924 Com- mission, came in the case of United College (the 1938 amalgamation of Manitoba and wesley Colleges). When, after 1932, "Sprinting from 43There is evidence, indeed, that even the University students "taking classes at the Fort Garry site are getting classes also in a 2-uhit subject of the Junior Division at the Broadway Site." Minutes of the Board of Studies, 19 October 1932, p. 249. 44Morton,,_c_>_p.§__i__t. p. 143. 160 College to University between lectures was no longer humanly possible,"l'5 the college undertook a policy of becoming a "fully rounded Arts col- lege in the humanities departmentsvof Study.""‘6 The Size of the insti- tution, significantly the largest of the colleges, its position in what was becoming virtually the centre of the growing city, its reasonably broad Offering, and a faculty of national status, and its gradually deve 10ped strength in student numbers at the Senior Division levelf”7 all had given United College a strength, by the time the practical POSSibility emerged again of moving to the central campus, that it could not have retained if it did then move. Additionally, the college had developed a heightened sense of responsibility as an urban college with a peculiar mission in its downtown setting."8 Thus, while in the late nineteen-twenties, its corporate forebears, Wesley and Manitoba, would have been willing to move to Fort Garry, United College in the late nineteen- forties was not. To a somewhat lesser extent, the unintended strength given to United College as a result of the delay in amalgamation, was shared by the other colleges as well. The position of the colleges relative to the University, which had reached something of a nadir during the \ 45Kirkconnell, 92. cit. p. 41. 46M. , pp. 41-42 . {‘7 Ibid. the ,QSN. Laping, "A History of St. Paul's College," (unpublished M.Ed. 818. University of Manitoba, 1972), p. 321. 161 iiijaeteen-twenties, was revised importantly by the accident of extended separation. As a contemporary article commented: . the remoteness of the Fort Garry site continues to be a aserious problem for students, and the suggestion is made that this 1188 had some effect upon recent University registrations. There is no escaping the fact that University registrations, as compared saith those of the affiliated colleges, have been falling off dras- tzically.49 While the article notes that fee differentials between Univer- sity and Colleges were the principal reason for the registration changes, it does insist that the separation played at least somepart. Another important consequence of the division may be derived from Kirkconnell's statement that ". . . any student desiring any SC 1HCD one mH>nm-mH> ooHn cm momeHOO one mo :oHuHmoa wcouum one cw peace on Ou eHanflm>m one meuswwm O>HumumaEOo LOH53 HOm mco cho meu mm new: uofiuoa onH * mamfi woe mmm ooq Homm mmmm mmmm anmw moma neoma mow «Hm HHN com mHNH mama Heed comm oomfi -omoH men mmd Hm «ma mNNH «mNH mmmm mums mmmH semofl OMOHHOU Owwafiou owmafloo mewaoo mwoafiou mocefiom unmefioucm unmefioucm new» usage: m.cnon .um mommwcom .um coucmum Hmuoe use muu< mumsumuwueuc: comme mumsmmuwuoucs uceafioucm uMOHHOU mo xuasomm uhufimum>wca HmuoH muwwum>flc3 HmuOH %unHO>HcD enema n mmmfi mezmzqomzm m>HH NHszmm< 373 APPENDIX v1 Statutory regulations reSpecting affiliation, as found in successive University Acts. (The first discrete regulations appear for the first time in the 1936 Act.) 52. 53. 54. 55. 374 AFFILIATED COLLEGES The following colleges are declared, subject to this Act, to be colleges affiliated with the University, that is to say, the College de St. Boniface, St. John's College, Manitoba College, Wesley College and St. Paul's College. The Board shall have power to dissolve the affiliation of any Of the said colleges with the approval of the Lieuten- and-Governor-in-Council and with the consent Of such college. Nothing in this Act contained shall be deemed to take away any power Of any college affiliated with the University at the time this Act comes into force to conduct courses of study that do not lead to any certificate, diploma or degree of the University, but every affiliated college shall conduct every course of study leading to any certifi- cate, diploma or degree of the University in compliance with the requirements of the Senate. Nothing in this Act contained shall be deemed to interfere with the management by any affiliated college of its purely internal affairs, or the purely internal discipline of its students. Nothing in this Act contained shall interfere with the right of any affiliated college to make such provision in regard 375 to religious instruction and religious worship for its own students as it deems prOper, and to require the same to be observed as a part of its own discipline. Statutes of Manitoba, 1936, Cap. 47. Section 52 Of the Act [above] is repealed and the following substituted therefor: 52. The following colleges are declared, subject to this Act, to be colleges affiliated with the University, that is to say, Le College de St. Boniface, St. John's College, Manitoba College, wesley College and St. Paul's College. The Board shall have power of its own motion to dissolve the affiliation of any of the said colleges for the breach Of any provision of section 53A of this Act, and, with the approval of the Lieutenant-Governor-in-Council and the con- sent Of any of the said colleges, to dissolve the affilia- tiOh of such consenting college for any other reason. The Act is amended by adding thereto the following section: 53A. NO affiliated college shall enter into any under- standing, agreement, federation Or affiliation, whole or partial, with any college or university other than The University of Manitoba, whereby it may Obtain in any such college or university, for its students any credit in any course leading to a certificate, diploma or degree, except 1968 376 in theology or divinity, granted by such college or university. Statutes of Manitoba, 1937, Cap. 49. 56(1) The following colleges are declared, subject to this Act, to be colleges affiliated with the University: 56(a) 57. 58. (a) Le College de St. Boniface (b) St. John's College (c) St. Paul's College The board may of its own motion dissolve the affiliation of any of the colleges for the breach of any provisions of section 58 and, with the approval Of the Lieutenant-Governor- in-Council and the consent of any Of the colleges, dissolve the affiliation of the consenting college for any other reason. Nothing in this Act takes away any power Of any college affiliated with the university on the first day of August 1936, to conduct courses Of study that do not lead to any certificate, diploma, or degree, of the university; but every affiliated college shall conduct every course Of study leading to any certificate, diploma, or degree Of the univer- sity in compliance with the requirements of the Senate. No affiliated college shall enter into any understanding, agreement, federation or affiliation, whole or partial, 377 with any college or university other than The University of Manitoba, whereby it may obtain in any such college or university for its students any credit in any course leading to a certificate, diploma, or degree, except in theology or divinity, granted by that college or univer- sity. 59. Nothing in this Act interferes with the management by an affiliated college of its purely internal affairs, or the purely internal discipline Of its students. 60. Nothing in this Act interferes with the right Of an affiliated college to make such provision in regard to religious instruction and religious worship for its own students as it deems prOper, and to require it to be Ob- served as a part of its own discipline. Statutes of Manitoba, 1968, Cap. 71. 378 APPENDIX VII CURRENT GOVERNMENT GRANTS (Figures represent percentages Of total) Compiled by the Canadian Association Of University Business Officers 379 APPENDIX VII Current Government Grants A. Brandon College 35 12 1961 1962 Universities Smallest* a) General Purposes 1. Federal 14.63 11.97 11.70 16.09 2. Provincial 31.36 41.22 33.32 27.45. 3. Municipal 4.07 4.88 .27 1.17 b) Specific Purposes 1. Federal - - .38 - 2. Provincial 17.87 13.25 2.79 1.25 3. Municipal - - .04 - *with incomes under $1,300,000. Brandon College President's Report, 1960-1962, p. 34. B' Brandon College 41 14 1963 1964 Universities Smallest 1963 a) General Purposes 1. Federal 11.22 9.26 12.01 18.78 2. Provincial 44.37 47.33 36.96 23.94 3. Municipal 3.22 2.80 .22 .49 b) Specific Purposes 1. Federal - - .36 - 2. Provincial 19.00 16.38 2.13 1.74 3. Municipal - - 15.11 1.37 Ibid., 1962-1964, p. 43. (An interesting comparison may be drawn also with the relative prOportions of municipal support; cf. p. ). A parallel provincial commitment to capital deve10pment was shown in its support Of the college's "Master Plan" for campus deve10p- ment: Grants from Province of Manitoba and Canada Council $600,000. Campaign (to be raised from private sources in five years) $1,000,000. $2. for $1. matching Grants, Province Of Manitoba .§2.QOO.000- $3,600,000. Ibid., 1960-1962, p. 37. "I7'11llllllllllllll