No changes in Separate School legislation were made after Confederation until 1886, and the only events of pa.s.sing importance in Separate School affairs were the objections raised in Kingston in 1865 and in Toronto in 1871 to visits of inspection by the Grammar School Inspector, who had been appointed to make these visits by the Council of Public Instruction. When Dr. Ryerson pointed out that these visits were authorized by the Scott Bill of 1863, the Bishops very gracefully waived their objections and the principle of Separate School inspection by Government officers was established. In 1874, the three High School Inspectors made a general inspection of Separate Schools. In their report to the Government they say: "The inspection of the Separate Schools derives an additional interest and importance from the peculiar position they occupy in our educational system. Among them we have found both well-equipped and ill-equipped, both well-taught and ill-taught schools. On the whole we regret that in the majority of cases the buildings, the equipment, and the teaching are alike inferior. There are but few Separate School teachers whose school surroundings are such as to make their positions enviable, and accordingly a large measure of approbation is due to those who have succeeded in doing good work. We have pleasure in stating that in many places the Separate School Boards are beginning to see that they must either make the schools under their charge more efficient or close them altogether. There are many things connected with the operation of the Separate School Act which invite comment; but we think it best to postpone the expression of our views until they are matured by the experience of another year."

Some years after this, in 1882, the Education Department adopted the plan of appointing special Roman Catholic Inspectors of Separate Schools. No doubt regular inspection of these schools has done much to increase their efficiency, but it is to be regretted that the plan of inspection adopted tends to widen still further the breach between them and the schools of the ma.s.s of the people.

Four years after Ryerson's death, the Act relating to Separate Schools was revised and amended. No new principles were introduced, but every amendment made tended to place Separate School supporters on an equality with supporters of Public Schools. The number of schools has gradually increased owing to the rapid increase in our urban population. In 1884 there were 207 Separate Schools, with 27,463 pupils; in 1894, 328 schools with 39,762 pupils; and in 1906, 443 schools with 50,000 pupils.

Perhaps the most important event connected with the history of Separate Schools since 1886 was the decision of the Judicial Committee of the Privy Council in November, 1906. This decision made it clear that the clause declaring persons qualified as teachers in Quebec at the time of Confederation to be qualified teachers of Separate Schools in Ontario applied only to individuals and not to religious corporations as such.

The result will be that the Separate Schools ought soon to have a body of teachers with the same academic standing and the same normal training as the Public Schools.

CHAPTER IX.

_RYERSON AND GRAMMAR SCHOOLS._

As already shown in the chapters on the early history of schools in Upper Canada, Grammar Schools were provided for before any provision was made for Common Schools. In fact the chief nominal purpose of the large grant of public land in 1799 was to endow Grammar Schools, and in 1807 schools were opened in each of the eight Districts into which Upper Canada was then divided. These schools were supposed to be cla.s.sical schools, fashioned upon the model of the great English Public Schools.

As a matter of fact they had no uniform standard of equipment, staff, course of study or graduation. A few schools, such as Cornwall, Kingston, York, and Niagara, were famous and turned out many able men.

Some of the schools received pupils who could not read, and were in no sense secondary schools. As the population increased, new schools were opened. Although originally intended to be free schools, they all charged fees. The public grant, which was paid direct to the princ.i.p.al, was one hundred pounds for each school. As the population increased, new schools were opened, and by 1844, when Ryerson became Superintendent of Education, twenty-five Grammar Schools and Academies were in operation.

These schools were managed by trustees appointed by the Crown, but were under no proper Government control. They were never really inspected.

Each school was a law unto itself. All were supposed to teach Latin and Greek, but in many of them there was not a single pupil studying either of these languages. They were handicapped in many ways. For years there were no good elementary schools from which they could draw pupils with a foundation for a secondary education. During the same long period there were in Upper Canada no colleges to which graduates of Grammar Schools might go for professional training. This gave these schools a wide scope and great opportunities, but few seized the opportunities. The poverty of the people and the natural apathy of many in regard to education also prevented the development of good schools.

Good schools are possible only with good teachers, and good teachers in Upper Canada were not easily secured. The professions of law and medicine then, as now, were much more attractive than teaching for men of ability and education. Mercantile life also offered great opportunities. The result was that the Grammar Schools were often in charge of incompetent teachers.

Ryerson's commission gave him no control over Grammar Schools. But his first Report in 1846 recommended a graded, unified system of schools from the Common School to the University. He also pointed out that these Grammar Schools which were intended for a special work were teaching everything taught in a Common School. In his Report for 1849 he recommended a commission of inquiry into the state of Grammar Schools and showed that the whole thirty or forty schools had matriculated only eight students into the University during that year. He suggested a fixed course of studies, a minimum qualification for entrance, and Government inspection. "Surely," he says, "it never could have been intended that the Grammar Schools should occupy the same ground as Common Schools, should compete with them, thus lowering the character and efficiency of both.... I am far from intimating an opinion that there are no efficient Grammar Schools in the Province, even under the present system or rather absence of all system. There are several instances in which separate apartments for different cla.s.ses of pupils are provided and a.s.sistance employed to teach the English branches, but such examples are rather exceptions to the general rule than the rule itself. The general rule is whether there be an a.s.sistant or not to admit pupils of both s.e.xes and all ages and attainments for A B C and upwards into schools which ought to occupy a position distinct from and superior to that of the Common Schools. Equally far be it from me to intimate that there is any deficiency of qualifications on the part of masters of Grammar Schools. But I doubt not that they will be the first to feel how much the efficiency and pleasures of their duties will be advanced by the introduction of a proper and uniform system as they will be the first to confess, '_non omnia possumus omnes_.'"[102]

[102] See extract from Report of 1849, published in D.H.E., Vol. VIII., p. 291.

After the Common Schools had been brought under the rule of law it was inevitable that the Grammar Schools should be reorganized. In 1850, Francis Hincks introduced a Grammar School Bill prepared by Doctor Ryerson. This Bill aimed at bringing the schools under popular control and administering them on lines similar to those governing Common Schools. Trustees were to be appointed by County Councils; Trustee Boards were to have power to levy rates for buildings, equipment and apparatus; the Legislative grant was to be distributed to the several Districts on the basis of population, but only when local contributions made up a sum equal to the grant exclusive of pupils' fees; the programme of studies was to be broad enough to prepare for matriculation; the Council of Public Instruction was to fix Grammar School programmes, prescribe texts and appoint inspectors. A meteorological station was to be established in connection with one Grammar School in each District. This Bill was withdrawn, but a similar one[103] became law on January 1st, 1854. The new Act, as amended in 1855, also provided for uniting Grammar Schools with Common Schools and provided that a Grammar School master, unless a university graduate, must secure a certificate from a Board of Examiners appointed by the Council of Public Instruction. This Act also authorized an annual appropriation of 1,000 to establish a Model Grammar School in connection with the Normal School, authorized the Council of Public Instruction to appoint Grammar School inspectors, and made up a liberal grant to secure libraries and apparatus. After this legislation, the Council of Public Instruction drew up regulations governing the curriculum of Grammar Schools and took steps to bring about the use of uniform texts. From the first there were two courses of study, a general English course and a cla.s.sical course leading to matriculation. The head master of each Grammar School was required to conduct an examination of candidates for admission, the requirements being intelligible reading from any common reading book, spelling, writing, elementary arithmetic, and the elements of English grammar, with definitions of geography.

[103] This Act did not give trustees power to levy a.s.sessments, but they might ask munic.i.p.al councils to do so. The distribution of the Legislative grant did not, as in the Bill of 1850, depend upon the raising of any fixed amount by the local Board.

In the autumn of 1855, the Grammar Schools were inspected, those in the east by Thomas Jaffray Robertson and those in the west by William Ormiston. Their reports show that many of these schools were indifferent and a few hopeless. Perhaps half of them were doing fairly well. The attendance averaged about thirty, of whom nearly one-half were studying Latin. Half of the schools admitted female pupils. The highest salary paid a head master was $1,200, while the average for head masters was $700. Few of the schools had two masters. Half the total number of head masters were graduates of British or Canadian universities. In some cases the teachers were paid a fixed salary, and in some cases they got the Government grant and the school fees. These fees averaged about three dollars per quarter. In a few cases the head master had a dwelling in connection with the school.

The inspectors criticised the buildings, equipment and grounds severely, as the following extracts will show:--

"Of the Grammar School houses seventeen were originally built for school purposes and several of them, which were s.p.a.cious and substantial buildings, may be cla.s.sed as good; ten were somewhat inferior; and one, a very old wooden building, could scarcely be considered habitable. Nine schools were carried on in premises rented for the purpose and were in most instances totally unfit. In many cases the grounds attached to the schoolhouses were partially or entirely unfenced, and the sheds or outhouses were in a shameful state of neglect. Even in the neatest premises I saw no attempt at ornament; not a tree, shrub or flower to awaken or cultivate a taste so simple and natural in itself and so easily gratified as it could be in rural districts.... Very many of these houses are inferior to the Common Schools. In most cases the premises present a dull, unthrifty and unattractive appearance, dest.i.tute alike of ornament and convenience, without fence, shed, well, tree, shrub or flower, while within an entire lack of maps, charts and apparatus is with too few exceptions the general rule."[104]

[104] See copy of Report in D. H. E., Vol. XII., p. 81.

Two years later the same inspectors made another general report on Grammar Schools. They found some improvements but many weak schools doing the most elementary Common School work. They deprecated the practice, then becoming somewhat common, of establishing new Grammar Schools in small villages.

It is abundantly clear from Ryerson's Reports, 1856-58, that he was dissatisfied with the progress being made in Grammar Schools and eager to attempt their improvement by means of further legislation. The most serious problem was that of providing an adequate and certain financial support for these schools. The schools were managed by trustee boards appointed by County Councils, but were attended largely by pupils of towns and cities. The people using them and contributing largely to their support were not given the power to manage them.

Ryerson was also very doubtful about the result of the experiment authorized in 1854, of uniting Common and Grammar Schools. The union gave trustee boards increased freedom of management, but in many cases the union school became, for all practical purposes, a common school, having, perhaps, three or four senior pupils studying Latin and Greek.

Such schools brought all Grammar Schools into contempt.

The report of the Grammar School inspector on the schools of Eastern Ontario, for 1860, shows that things were far from satisfactory:

"With the exception of two or three really good schools our Grammar Schools in the extreme East are in a very low state. Some of them I can only designate as infant schools. Nor do I see anything from the localities in which they are placed or the present state of the Grammar School law which gives me any hope of amelioration.

Advancing civilization and the material growth of the country in time may act upon them, but immediate remedies and those of a stringent nature are imperatively needed.... The want of a cla.s.s of specially trained Grammar School masters who have taken this as a permanent profession for life is a great drawback to the efficiency of our schools. The supposed inferior social status of the Grammar School master and the larger rewards held out for superior mental activity in the other professions turn aside most of those who are most eminently qualified for the scholastic office. Of the twenty-two schools mentioned in my report six were in the hands of persons who avowedly were making teaching the stepping-stone to the attainment of other professions, as law, medicine, or the church.

Several were evidently conducted by persons who had taken to teaching after having failed in other walks of life. Comparatively few were held by those who were fitted for their office by previous training, or were devoting themselves entirely to their work as the main business of their lives."[105]

[105] See D. H. E., Vol. XVI., pp. 148, 149.

There seems also to have been a disposition to unduly multiply Grammar Schools because they were supported so largely by the Legislative grant.

The Rev. Dr. Paxton Young, Inspector of Grammar Schools, in his report for 1864, says: "The too free and inconsiderate exercise by County Councils of the large power thus entrusted to them has led to a heedless and most unfortunate multiplication of the Grammar Schools, and the evil instead of showing any symptoms of abatement appears to be growing worse from year to year. In 1858 the number of the schools was seventy-five; in 1860 it was eighty-eight; in 1863 it had risen to ninety-five; and the number of recognized schools is now as high as one hundred and eight. Not a few of the schools thus hastily established are Grammar Schools in name rather than in reality, the work done in them being almost altogether Common School work, which, as a rule, would be much better performed in a well-appointed Common School. I believe that County Councils are often led to establish Grammar Schools in localities where they are not needed under the idea that if the schools should be productive of no good at any rate they can do no harm. There could not be a greater mistake. Men ought to be wise enough by this time to understand that all public inst.i.tutions, especially if forming parts of a great plan, must, where unnecessary, be positively bad. Needless and contemptible Grammar Schools are a blot upon the whole school system, the sight of which is fitted to shake the confidence of the country in the administrative wisdom or firmness of those to whom the direction of educational matters is committed. When it is considered that the apportionment from the Grammar School fund to a particular county is divided according to certain fixed principles between the different schools in that county, it will be seen that the disposition manifested by some councils to secure the largest number of schools for their county, is practically a disposition to secure quant.i.ty for quality, for as the number of schools is augmented the salaries of the masters are diminished, the tendency of which is, of course, to throw the schools into the hands of a lower grade of teachers.... About three out of every five Grammar Schools in Upper Canada have Common Schools united with them, and, in not a few instances, where unions have not yet been formed, I found a strong disposition existing to enter into such an arrangement. I made it my business to inquire particularly into the benefits supposed to result from the union of the Common with the Grammar Schools. The chief advantage was in almost every case admitted to be a pecuniary one. By the existing law Grammar School trustees have of themselves no power to raise money for Grammar School purposes, but in case of the Common and Grammar Schools becoming united the joint boards may levy money for the support of the united schools. This being so, it is easy to comprehend how strongly the trustees of a Grammar School who feel their hands tied up from doing anything to put the school in an efficient state may be tempted to make with the Common School Board a league which will give them a voice in the important matter of taxation.... But of nothing am I more convinced than that as a rule such a union is undesirable. In a large number of instances it throws upon the Grammar School master the necessity of receiving into his room, and personally instructing, Common School pupils, as well as those whom it is his more particular duty to attend to. A consequence of this is that he cannot afford the Grammar School pupils the time that is necessary for drilling them in the subjects that they are studying."[106]

[106] See copy of Report in D. H. E., Vol. XVIII., pp. 199-205.

But Doctor Young saw much promise in the schools, as the following from the same Report will show: "Leaving out of view schools of this sort, I do not hesitate to say that the Grammar Schools of Upper Canada are, as a cla.s.s, not only in the promise of what they may become, but in what they actually are at the present moment, an honour to the country. We must not look for too much. It would be preposterous to expect at this early period in the history of our Province, that its Grammar Schools generally should be able to bear comparison with the better cla.s.sical and mathematical schools of Great Britain and Ireland. To this Canada does not pretend, but she has begun well, and appears to be steadily, if not rapidly, progressing."

In June, 1865, Ryerson went to Quebec to press upon the Government the necessity of a new Grammar School bill. As the Confederation scheme was approaching maturity he found the Government unwilling to embark upon any legislation that might prevent an early prorogation. Mr. John A.

Macdonald suggested that the difficulty might be met by a regulation issued under the authority of the Council of Public Instruction. This was accordingly done, and the Council immediately framed regulations as follows: First, the Legislative grant was to be apportioned on the basis of the attendance of those learning Greek and Latin, as certified by the Grammar School Inspector. Second, no school was to receive any portion of the Legislative grant unless suitable accommodations were provided, and unless there were an average of at least ten pupils learning Latin and Greek, nor were any pupils to be admitted or continued in a Grammar School unless they were learning Latin and Greek.

This absurd regulation never went into effect, as the Legislature pa.s.sed a Grammar School Bill in the latter part of 1865. The new Bill made each city a county for Grammar School purposes; it allowed County Councils to appoint half the Grammar School trustees, the other half being appointed by the village or town council where the school was situated. This latter provision was planned to give increased local control and thus create a stronger interest in the management of the schools. The distinction which had so long existed between senior and junior county Grammar Schools[107] was abolished and the Legislative grant was apportioned solely on the basis of attendance, but no school was to share the grant unless there was raised from local sources, exclusive of pupils' fees, a sum equal to half the grant. It was made more difficult to establish new schools. Only graduates of universities in British dominions were to be eligible for head masters' positions. On the suggestion of the Hon. William Macdougall, a clause was inserted providing for a grant of fifty dollars a year to those Grammar Schools giving a course of elementary military instruction.

[107] This senior Grammar School, being the one first established in each county, had drawn a larger Legislative grant than the others.

The Report of Rev. Geo. Paxton Young on the Grammar Schools in 1865 is of great interest, read in the light of nearly half a century's progress in the higher education of women. I shall quote his exact words:

"I have frequently been asked whether I considered it desirable that girls should study Latin in the Grammar Schools. It is, in my opinion, most undesirable; and I am at a loss to comprehend how any intelligent person acquainted with the state of things in our Grammar Schools can come to a different conclusion.... Since I became Inspector, I have not met with half a dozen girls in the Grammar Schools of Canada by whom the study of Latin has been pursued far enough for the taste to be in the least degree influenced by what has been read. Aesthetically, the benefits of Grammar Schools to girls are _nil_.... It may perhaps be said that although they have for the most part made but little progress in Latin up to the present time, a fair proportion of them may be expected to pursue the study to a point where its advantages can be reaped. I do not believe that three out of a hundred will. As a cla.s.s, they have dipped the soles of their feet in the water, with no intention or likelihood of wading deeper into it. They are not studying Latin with any definite object. They have taken it up under pressure at the solicitation of the teachers or trustees to enable the schools to maintain the requisite average attendance of ten cla.s.sical pupils or to increase that part of the income of the schools which is derived from public sources. In a short time they will leave school to enter on the practical work of life without having either desired or obtained more than the merest smattering of Latin, and their places will be taken by another band of girls who will go through the same routine. It may perhaps be urged that these remarks are as applicable to as large a number of the Grammar School boys as they are to the girls. I admit that they are; and I draw the conclusion that such boys, equally with the girls in the Grammar Schools, are wasting their time in keeping up the appearance of learning Latin. It would be unspeakably better to commit them to first-cla.s.s Common School teachers, under whose guidance they might have their reflective and aesthetic faculties cultivated through the study of English and of those branches which are a.s.sociated with English in good Common Schools. This would, of course, diminish the number of the Grammar Schools in the Province; but it might not be a very grievous calamity, especially if it led to the establishment of first-cla.s.s Common Schools in localities where inferior teachers are now employed."[108]

[108] See copy of Report in D. H. E., Vol. XIX., pp. 96, 97.

It was a part of a Grammar School inspector's duty to examine the pupils who had been admitted by the Grammar School masters and reject any who were too immature or were insufficiently prepared. Dr. Young complains strongly in his Report of 1865 of the poor teaching of English grammar.

In some cases he had to reject more than half those admitted. He found pupils wholly unable to pa.r.s.e such easy sentences as: "The mother loved her daughter dearly," "John ran to school very quickly," "She knew her lesson remarkably well."

It is doubtful whether the Grammar School Bill of 1865 made any real improvement in the schools. Without denying that some of them were doing a good work, and that as a force in the national life they were fostering some love for higher education, it is safe to a.s.sert that they were not very closely related to the real needs of the people. Their aim was narrow. Their very name shows this. There was a crying need in the country for schools that would give an advanced English and scientific education with cla.s.sic and modern languages to those who wished to pursue university studies. But the most of the Grammar Schools aimed only at a study of Latin and Greek, and indeed the Grammar School legislation and the regulations of the Council of Public Instruction had made a certain number of Latin pupils one of the conditions upon which a Grammar School might receive a public grant.

The Act of 1865 soon showed some disastrous tendencies. It did not check the desire to form unions between Grammar Schools and Common Schools, as such unions made it easier to levy a rate in support of the union schools, and thus comply with the conditions upon which Grammar Schools received grants. The clause in the new Act making average attendance the basis of attendance, together with a regulation of the Council of Public Instruction which counted only Latin pupils in making the grant, led the head masters of union schools to draft every available pupil into the Grammar School departments[109] and put them all, boys and girls, into Latin. Often they were not prepared for such work and got no real benefit from it. They wasted their time and lost the benefits of a sound English education which a good Common School would have given them.

Hundreds of boys and girls who had no foundation for a cla.s.sical education, and who had no prospect of ever advancing far enough to receive any solid knowledge of Latin, were making a pretence of studying it in order that the school might draw a Government grant. Ignorant parents raised no objections, thinking perhaps that Latin possessed some charm which would be an "open sesame" for the future advancement of the boys and girls.

[109] It should be remembered that while a Public School pupil drew less than one dollar per year Legislative grant, the moment this pupil was enrolled in a Grammar School he drew from $20 to $35 yearly. In 1872, the average Legislative grant to a Public School pupil was 40 cents, and to a Grammar School pupil $20. See D. H. E., Vol. XXIV., p. 302.

Dr. Ryerson was not the man to diagnose the case. But the hour brought forth the man, and that man was George Paxton Young, one of the Inspectors of Grammar Schools. In two very able Reports[110] presented in 1867 and 1868, he sets forth clearly and convincingly the defects of the system then in operation and suggests the direction that reforms should take to make the Grammar Schools serve a useful purpose. He wished to see their character wholly changed. He did not undervalue cla.s.sics, but he believed that a smattering of cla.s.sics was of no benefit, and that it caused a waste of time that might be given to subjects of real value. He wished to see High Schools that would give an advanced English training, together with natural science, mathematics, and history. He did not believe in forcing all to study Latin, nor did he believe in apportioning grants to High Schools on the basis of the number of pupils studying Latin. He wished to see better Common Schools and objected to the plan of union which robbed the Common School of its older pupils and degraded its function. Speaking of this, he says: "The number of union schools is increasing and is likely to increase. In many of the schools of this cla.s.s all the Common School pupils, boys and girls alike, who have obtained a smattering of English grammar are systematically drafted into the Grammar School. The consequence is that in localities where such a system is followed there is no mere Common School education (observe I say mere Common School education) given to any pupils, boys or girls, which is not of the most elementary description; and not only have the Grammar Schools thus become to a great extent girls' schools as well as boys' schools, but--what is especially noteworthy--the girls admitted to these schools are in a majority of instances put into Latin as a matter of course; in other words, the study of Latin is made practically a condition of their admission into the Grammar School. Will any man say that this state of things is satisfactory, a state of things in which the Common Schools are degraded by being suspended from the exercise of all their higher functions? Unless I misunderstand the object of the Common School law, the Common Schools are designed to furnish a good English and general education to those desiring it. But how can this end be accomplished where the Common Schools are subject to arrangements under which the highest stage of advancement ever reached by the pupils is to be able to pa.r.s.e an easy English sentence? ... Children under thirteen years of age who do not mean to take a cla.s.sical course of study have no educational wants which the Common Schools, properly conducted, are not fitted to supply. For children of thirteen and upwards who have already obtained such an education as may be got in good Common Schools, it would, I think, be well to establish English High Schools--a designation which I borrow from the United States although, unfortunately, I have only a very vague idea of what the High Schools in the United States are."

[110] See copy of Report in D. H. E., Vol. XX., pp. 98-128.