McGILL UNIVERSITY

GENESIS OF THE MONTREAL COUNCIL OF SOCIAL AGENCIES

A Thesis Submitted to The Faculty of Graduate Studies and Research In Partial Fulfilment of the Requirements for The Master's Degree in Social Work

by William F. Shepherd

Montreal, April, 1957 DEDICATION

To my wife and son with gratitude for their forbearance and encouragement

1

ii ACKNOWLEDGMENT

The writer wishes to thank the President and members of the Board of The Boys' Farm and Training School for permission to attend the McGill School of Social Work on a part­ time basis from 1953 to 1957. The co-operation of Mr. Charles H.Young, Executive Director of the Montreal Council of Social Agencies; Miss Gwyneth Howell, Associate Executive Director, and her staff is gratefully acknowledged. Appreciation is extended to Miss Eva R. Younge and Professor Philip Garigue for valued consultation and assistance. Special thanks are due Dr. John J.O.Moore, Director of the McGill School, who did the author the honour of acting as his student and thesis advisor.

iii TABLE OF CONTENTS Page

LIST OF TABLES • • v

LIST OF ILLUSTRATIONS • • • • • • vi

LIST OF APPENDICES • • • vii

INTRODUCTION • • • 1 Chapter I THE SOCIAL SERVICES OF QUEBEC, HISTORY AND DEVELOPMENT • • • • 12 II THE FORMATION OF THE COUNCIL • • 42

III FINANCIAL FEDERATION • • 76 IV THE PROBLEM OF MENTAL RETARDATION • 95

v CONCLUSIONS. • • • 128

APPENDICES • • . • • • • • 146 BIBLIOGRAPHY • • 153

iv LIST OF TABLES

Table Page

1 Population of Montreal 1642-1941 • 22 2 Distribution of Public Funds to Private Agencies in Montreal 1918-1919 • • • • • • • • 81

v LIST OF ILLUSTRATIONS

Figure Page 1 Montreal Council of Social Agencies Organization Chart 1922 • • • • 2 Objectives and Receipts Welfare Federation Campaign 1922-56. • • 91

vi LIST OF APPENDICES

Appendix Page A Montreal Council of Social Agencies List of Member Agencies, March, 1957 •• 146 B List of Agencies attending organ- izational meeting: Montreal Council of Social Agencies January, 1919 • . 149 C Financial Federation 1922, First Board of Directors. • • • • 151 D Red Feather Agencies March, 1957 • 152

vii Master of Social Work School of Social Work McGill University

William F. Shepherd

GmESIS OF THE MONTREAL COUNCIL OF SOCIAL AGENCIES

Thesis Abstract

This is a stu~ of the origine of the Montreal Council of

Social Agencies, a highly-deTeloped welfare planning bo~ of Montreal.

An analysis is made here of its position and its functions in relation

to the historical background of the Province of Quebec and to the cultural

!'orees which :iapinge on the Council' s growth Sld deTelOJDE'Ilt.

The wrk deals also with the fomation of Financial Federation

because of the symbiotic relationship which existe between it and the

Co un cil.

The Council's efforts on behalf o!' mentally retarded children

are discussed in detail and the writer concludes that the Council's work is constantl7 influenced by the traditional attitudes of French

Catholics in the ProTince of Quebec.

This thesis emphasizes the importance, to both English and

French, of a mutual understanding of their characteristic cultural

differences and of fostering common Talues in order that a closer working relationship can be developed between these two ethnie groups in the welfare field.

It is suggested that there exista in this province a dominant culture of which English and French are but different expressiœ s. INTRODUCTION

This is a study in community organization, an ex­ 1 amination of The Montreal Council of Social Agencies. The writer's intention is to endeavour to develop a greater understanding of the Council's role in the community and of its present and future functions through an examination of its origins.

Background

The reasons for undertaking the study at the present time fall into several categories. The first of these is personal. (1. The writer is deeply interested in the history of the Province of Quebec. As a social worker for nearly two decades, he has become ab­ sorbed in tracing the growth of the welfare services in the province and particularly in studying the development of English-Protestant institutions within a prevailing Catholic climate. (2. As a member of the Board of Governors of the Council, he has become interested in the factors which led to the formation of the Council in 1920. (3. Lastly, the writer is the Executive director of an agency which, by virtue of membership in the Council, has a vested interest in its future.

1 Hereafter referred to as the Council. - ' - -2-

The more compelling considerations giving rise to the study, however, are the Council's bread objectives and the peculiar social framework within which these objectives must be achieved. The Council - Its Objectives and Responsibilities. The Council is the major welfare-planning and coord­ inating body of the English-speaking population of Montreal. Its principal objects are stated in Article 2 of its con­ stitution and are as follows: To promote, co-ordinate, advance and maintain health and welfare work in the city and suburbs of Montreal and in particular: a) To secure the necessary factual basis for planning and action. b) To promote community thinking and joint planning. c) To gain the advantages of concerted action, through co-operative services and otherwise. d) To increase the effectiveness and improve standards of work of individual organizations. e) To increase public understanding of what is being done in health and welfare work. f) To help secure adequate support from the public and from government bodies for both public and private health and welfare work. The Membership of the Council includes represen­ tatives of eighty-six welfare, health, recreation and 1 religious organizations, these operating mainly in the city and its immediate surroundings, though sorne render a province­ wide service. The Board of Governors comprises members of the

1 See Appendix A, p.l4~List of present member organ- izations. - 3 -

Protestant and Jewish faiths. Sorne of the member organ- izations give service only to people of particular religious denominations. The majority, however, provide services re- gardless of race or creed. Both the membership and the work of the Council are affected, of course, by the development of the community of which it is a part. New France began as a highly organized urban settle­ ment. In the course of time the economy became primarily rural but of necessity rather than from choice. By 1820 the best agricultural land was occupied and there began the emigration of sorne half million French Canadians to the towns of New England. 1 The development which saved Quebec was an industrial revolution. The industrialization of Quebec, which began at the beginning of this century, proceeded imperceptibly but in­ creased with accelerating momentum during the last two decades. The provincial economy has been completely transformed. At the end of the last century agriculture contributed 65 per cent of the total production in Quebec. 2 In 1920 this figure had dropped to 37 per cent and in 1941 to 10 per cent.3 Abundant supplies of ore and timber, the development of hydro-electric power and the advances in technology have been the contribut­ ing factors.

1 Jean (Quebec: Les Presses 2Ibid., p.28. - 4 -

Along with industrialization has come urbanization, and this has vastly increased health and welfare needs. In Montreal this has been reflected in the Council's preoccupation with auch problems as housing, income maintenance programs and services which support and strengthen family !ife. When the Council was created, the population of Montreal numbered just over 400,000, of whom approximately 61 percent were French.1 Since then the city has experienced a phenomenal growth. The population of Metropolitan Montreal today is four times as great as it was in 1920. (The percent­ age of French has increased by about 3.6). This tremendous increase in population has been caused by two factors: first, the rapid industrialization and urbanization which has been going on in Quebec since the end of World War I, and, second, the immigration from Europe since the end of World War 11. The increase in population has been accompanied by a phenomenon which has been occurring in large cities all over the North American continent: decentralization into suburbs. In Montreal this bas been happening from one end of the Island to the other and across its breadth. Welfare needs, particularly in the area of recreation, have grown in the suburbs with their proliferation. The Council, which formally restricted its services to the city proper and to one or two adjacent m·.ùn­ icipalities, now finds itself concerned with the total welfare

1 Ibid., p.?J. ~ 5 - requirements of the entire Island of Montreal in so far as they affect the non-Catholic population. The Council, therefore, is re-evaluating its functions. Already it has organized a multiple-service agency for the Lakeshore, i.e., the area extending west from the city of Lachine to the western limits of the Island. This is a sig­ nificant trend, undoubtedly presaging assumption of greàtly increased responsibilities. The Cultural Milieu and the Welfare Structure. Up to this point the picture with respect to the Council is npt unlike that in any fast growing metropolitan area. However, the social framework within which the Council operates possesses certain characteristics which are indeed unique and which create very special prbblems. The most salient and important of these features is the philosophy upon which the welfare structure is based throughout the province of Quebec. This structure finds its roots mainly in the Roman Catholic religion, the traditions of France and the edicta of Rome. The social service philosophy of the Protestants, on the other hand, stems from the Poor Laws of Great Britain. In Montreal there are two groups, in addition to the English Protestants and the French Catholics, to be considered. The English Catholics, less numerous than the Protestants and predominantly Irish, find their social service concepts both within the Roman Catholic Church and the Anglo-Saxon culture. Finally, there is a highly integrated Jewish population which .,- 6 - in 1916 organized the first financial federation in this city. Hence, the welfare structure in Montreal is exceedingly complex. There are four distinct welfare divisions. First, the loosely structured French Roman Catholic, working in­ creasingly through centralized agencies and on a diocesan basis, but also by parishes, and covering the great majority of the population. Second, the English Protestants. Third, the English Roman Catholics, and finally, the Jews. Each of these groups has its own financial federation, and each con­ ducts an annual campaign. The English Protestants and the Jews came together in the Council and there is close liaison between the Council and the English Roman Catholic group. The French have their Conseil des Oeuvres (formed in 1933) as their centralizing body. Over all is the Inter-Federation Council to which all four divisions belong. The latter organization came into being in 1941, but as an instrument for collaboration, co­ ordination and collective bargaining it bas not for sorne time been too effective.

The Council and the Dominant Culture. The Council's effectiveness depends to sorne extent on its relationships with each of the groups within this complex structure. But developments within the French Roman Catholic community and the Council's relationships with this dominant majority appear to be of supreme importance. For, while the Council's responsibilities are increasing, - 7 -

the agencies of the Council, due to economie factors, find themselves becoming increasingly dependent on the financial support of a government reflecting the dominant culture. In the last paragraph of her work on the Montreal Council of Social Agencies, Dorothy Aiken writes: There is now more than ever an understanding relationship between the private agencies and the provincial and municipal welfare officials. A respect for the rights of the English-speaking minority has always characterized official re­ lations, so that the Council of Social Agencies has had a good hearing from governmental bodies. It seems clear, however, that gains in public welfare planning can come in the future more surely if the French give the leadership. The Council of Social Agencies with its longer ex­ perience can continue to be a significant stimulus.l It is the unique socio-cultural nexus outlined above which at once adds interest to the Council, makes it important that it be understood, and dictates an approach of sorne depth in attempting to understand it.

Objectives

The writer has chosen to begin this attempt at under­ standing the Council through an historical approach. This was to be confined by limitations of time to a study of the organization's origins. It was thought that such an approach would be of value,

J 1 since it is common knowledge that early events and early decisions frequently prove to be crucial for subsequent

1 Dorothy Aiken, "The Role of the Montreal Council of Social Agencies in the Establishment of Public Assistance", Unpublished Master's Thesis, School of Social Service Administration, University of Chicago (Chicago, 1950), p.l49. - g -

development of communities and their institutions and agencies. The rationale for this approach is not unlike that of the st!dy of early childhood for the understanding of adult personality. Furthermore, such an approach is accepted as of value in community studies.1 The kind of history most common in sociological study is not a chronology, a year-by-year account of the past. It is a 'natural history', such as 'nature scientists' write about plants, and animals--their origins, struggle for ex­ istence, adaption to habitat, migration, or death. Communities have stages in their life, for example, first settlement, growth and de­ velopment, the peak of their existence, decline, revival or rebirth, and possibly eclipse ••• 2 The main question with which the study is concerned then, is, "What light is shed on the present functions of the Council by a study of its early origins?" Evolving from this question come two others: (1 "Why and how did it come into being?" (2 "How has it developed and what relationships do there appear to be between this development and its origins?"

Method

The study has involved original research in the exam­ ination of various Council records and in interviewing persons with special knowledge of the period under scrutiny, and library reseqrch for historical and sociological material.

1Lloyd Allen and Elaine Forsyth Cook, A Sociological Apbroach to Education (New York: McGraw-Hill Co., Inc., 1950), p. 4. 2Ibid., p.65. - 9 -

An earnest effort has been made to understand the events leading up to the Council's establishment. The actual steps which culminated in its formation are subjected to analysis, with special attention being paid to the forces which were operating at the time and to the personalities of some of the prime movers. This same analytic approach has been applied to the beginnings of Financial Federation because of the symbiotic relationship existing between Council and Federation. Finally, an attempt has been made to answer the last question stated above through tracing and analysing one problem of persistent interest to the Council from the be­ ginning, namely, the problem of mental retardation. In each instance there has been an effort to record events as they happened and to relate them in narrative form. This has been subjected to analysis which appears at the end of each chapter under the heading "Summary-Analysis".

Limitations The study is limited because of the magnitude of the problem and the amount of time available to a partial student who is also carrying full responsibilities as an agency ex­ exutive. The work deals only with beginnings and the detailed consideration of only one of many concrete problems of con­ cern to the Council. - 10 -

The persona! biases of the writer are a further limit­ ation. These are, indeed, the same as the original motivations as stated above.l But bias and motivation are often, paradox­ ically enough, very much the same. The consideration in this thesis of the forces which impinge on the Council are admittedly suggestive rather than exhaustive and profound. Also much deeper analysis is required, than is provided here, of the extremely complex social pattern which has evolved in -Quebec. The essential aim of the study must be to develop hypotheses for consideration and for possible future research. In regard to data, the writer does not claim to have consulted all the material available, and confesses that it has been possible from the material to record only events and not processes. The conclusions depend, therefore, to a large extent on induction. Presentation Chapter I traces the history of the Province of Quebec and describes how the social services developed from the founding of New France. It will be explained how, after the conquest, because of constitutional rights given the Province, English-Protestant institutions came into being on the basis of need within the framework of French Canada and Catholic tradition. Chapter II describes the events leading up to the form­ ation of the Council created in order to integrate the Protestant welfare services of the community and to plan for

1 Supra., p.l, Background. - 11 - their future expansion. Chapter III discusses how Financial Federation came into being as a logical and inevitable result of the Council's establishment. Chapter IV describes in detail the Council's efforts to provide facilities for the care and treatment of mentally re­ tarded children. Here the period covered is from the Council's inception up to the present. The concluding chapter evaluates the preceding material and develops certain hypotheses in relation to the Council's functions both present and future. - 12 -

CHAPTER 1 THE SOCIAL SERVICES OF QUEBEC HISTORY AND DEVELOPMENT

Une conriance illimitée dans l'effort individuel des citoyens et dans le jeu des solidarités naturelles de la famille, de la parenté,des communautés paroissiales, des societés coop~ratives et mutuelles et dans le rÔle joué par les élites religieuses, a inspiré le mouvement de l'assistance et du bien-etre depuis les commencements de la Province. 1 Introduction This chapter will attempt to outline briefly the development of social services in the Province of Quebec and the factors which led to the formation of the Montreal Council of Social Agencies and the Financial Federation. 2 The creation of Councils of Social Agencies all over America resulted from the growing complexity of sociàl service structure caused by rapid industrialization and ur­ banization and situations created by the First World War. In the Province of Quebec the Council's development was influenced by very special circumstances. The English­ Protestant minority has developed within a culture, from which it differed in religion, social organization, politics

1 Esdras Minville, L'aspect economique du orobleme Canadien-Francais (Montreal: Editions Bellarmin, No.436, 1954), p.6. 2Now Welfare Federation. - 13 - and language. The social service structure of French Quebec is quite different from elsewhere. Therefore, to understand even partially the development of English institutions it is necessary to have sorne knowledge of the history behind them. The chapter will be divided into four sections. The first deals with the French regime from the founding of New France in 1534 to the conquest in 1760 during which time all welfare services were provided by the Roman Catholic Church. The second section covers the British regime up to 1875 and explains how the first English welfare institutions came into being. The third section covers the years 1875 to 1918 and discusses in general terms the change in social concepts which began in the United States about 1875 and which soon influenced the thinking of leaders in the Welfare field in Canada. The final section contains the summary and analysis. - 14 -

The French Regime 1534-1760

The Church lays on the faithful the personal duty of charity even unto the gift of one's self •••• l Jacques Cartier opened the gateway of New France in 1534. Converter of souls, patriot and geographer, he made no attempt to conquer nor to colonize. Following his last voy­ age in 1543, " ••• 'religion' thundered its wars over Europe ••• "2 and New France was all but forgotten. The Indiana continued in possession of the primordial forests almost without dis- turbance, except for fishermen from France who took advantage of the inland waters Cartier had chartered and who later began a trade in furs. It was Samuel de Champlain who was the true founder of this vast land.3 He made his first voyage to this country in 1603. Five years later he created the first permanent settlement in Quebec and in 1611 he had the land cleared for the settlement which became Ville Marie, thirty-one years later. Champlain was endowed with those qualities necessary for the development of a new land. He was both warrior and

1Esdras Minville, islation and Social Services in the Province of uebec Ottawa: he Queen's Printer2 Appendix 5, 1939 , p.45. Stephen Leacock, Canada, the Foundation of its Future (Montreal: 1941), Privately printed, p. 44. ~ason Wade, The French Canadians 1760-1945 (Toronto: The Macmillan Co., Ltd., 1955), p. 9. - 15 - colonizer. He understood not only the importance of trade but the spiritual and physical needs of men. In 1615 he brought the Recollects to Quebec and ten years later the Jesuits. These orders organized the first institutions for education and the care of the sick in the small settlement. Thus began a tradition of devoted social service within the Catholic Church which exists in Quebec to this day. The Jesuits were instrumental in bringing to New

\ France Mere Marie and her Ursuline nuns in 1639 to found a school for Indian girls. With them came hospitalières1 to take charge of the first Quebec hospital already prepared for them. In the Ursuline school the girls were trained to be­ come good Catholics and good wives. They absorbed education avidly, but many, from time to time, pined for their forest homes. Sometimes they slipped away, usually returning after a few days. The nuns affectionately called them petites 2 coureuses~ bois. An important activity of the Ursulines, which started in 1654, was the importation of wives for the coureurs de

~ and the soldiers 6f the garrison. d'Iberville said,

"With wives I will anchor the roving coureurs de ~ to the soil of New France."

1Sisters of Mercy. 2 \ Agnes Repplier, Mere Mari e of the Ursulines (New York: Doubleday Doran and Co., 1931), p.91. - 16 -

It is estimated that a thousand young women came to

Quebec in this way pour peupler ~ ~, which duty they indeed fulfilled. The figure of one thousand is significant when one recalls that in the first hundred and fifty years only ten thousand people altogether came from France to Quebec. Mere\ Marie tried to encourage miscegenation but most Indian girls preferred men of their own race. There were injunctions on marriage. Bachelors were fined and hunting licenses were revoked. Bonuses were awarded for early marriage. Men who had ten or more children born in wedlock received pensions in accordance with the size of the family. 1 The traders came and went and the colony grew almost 2 imperceptibly. The first true settler arrived in 1617 and by 1663 there was a population in Quebec of 500, of whom 150 were religious. One hundred and twenty-five years later there were still only lS,OOO inhabitants, from whom have de­ scended, for the most part, the present French Canadian population. The Church had no difficulty in providing the simple social services needed at the time. Apart from hospital and educational establishments, other religious orders came from France or were started here as they were needed to care for children and the aged. The founding of Montreal was different from that of Quebec in that exhaustive plans were prepared in France over

1 Quite different from France where the family unit was small. 2 Wade, op.cit., p.l3. - 17 - a lengthy period. In 1640 a new Company or Montreal was rormed in place or the Hundred Associates created in 1627. The settlement or Ville Marie1 was conceived as a dynamic missionary venture to educate and civilize the savages and to establish a strong colony. The Sulpicians were rounded in France in 1640 by Abbé Jean Jacques Olier who, with de la Dauvessiere, had much to do with planning ror Ville Marie. In the 1650's rour missionaries rrom the Order were sent to the new settle- ment to begin their great missionary work or teaching and converting. They became the reudal holders or the Island of Montreal in 16632 the Compagnie de Montreal having trans­ ferred its feudal rights to them. Paul de Chomedy, Sieur de Maisonneuve, was chosen as the first governor and on the lSth of May, 1642, he took rormal possession or the new colony. Jeanne Mance was with him on the day or foundation, accompanied by Madame de la Peltrie, who had brought the Ursulines to Quebec and who decided to join Jeanne Mance in Ville Marie. Later the same day the two wornen prepared an altar and mass was celebrated. Reverend Father Vimont, in the sermon he preached on that solemn occasion, uttered sorne prophetie words.

lcartier, visiting the site of Ville Marie, named the mountain Mont Royal for his sovereign, Francis First. The name Montreal was not used until 1705. - 18 -

Look, gentlemen, what you see is but a grain of mustard seed, but it is sown by hands so pious and so moved by the spirit of faith and piety that Heaven must doubt­ less have vast designs since it uses such workmen, and I have no doubt that this seed will grow into a great tree, one day to achieve wonders, to be multiplied and to spread to all parts.l Mlle. Mance had come to Ville Marie with the express purpose of organizing the Hotel Dieu which was built in 1644. In 1663, on a visit to France, Maisonneuve went to see his sister who was the Superior of the Convent of Notre Dame at Troyes. She and her nuns had been looking forward to the establishment of a school in the new colony but Maisonneuve had decided that Ville Marie was not a suitable place for a cloistered order. 2 There were no fortifications as there were in Quebec. The nuns were bitterly disappointed but when asked by Maisonneuve if there was not a young woman in the entire congregation who might be sent to teach, they suggested Marguerite Bourgeoys who had been living with another of the governor's sisters, Madame de Chuly. Marguerite Bourgeoys had been praying for such an opportunity. She saiied from Nantes and on the long voyage over, an epidemie of ship's fever broke out. She nursed the sick and, because there was no priest on board, she ministered to the dying, and thus began her great apostolate at the age of thirty-three. Arriving at last in Ville Marie she had to wait four years before she was given a stone stable by

lrbid., p.99. 2Sister St.Ignatius Doyle, Marguerite Bourgeoys and Her Congregation (Montreal: Garden City Press, 1940), p.29. - 19 -

Maisonneuve to begin her school. It became known as the Congregation after the one at Troyes. But in the interval of waiting she had not wasted her time. She visited the sick, consoled the afflicted and washed and mended linen for the poor. She was indeed the first Canadian social worker, help­ ing to improve social conditions and the standard of living.1 She taught young and old to help themselves to achieve self­ respect and dignity. The congregation she established in the simple little school opposite the Hotel Dieu on St.Paul Street later grew into the great teaching order it is today. Mgr. de Laval, Bishop of Quebec, wanted Marguerite Bourgeoys' Congregation to be a branch of the Ursulines. But the Ursulines were cloistered, and Marguerite Bourgeoys wished her nuns to be free to move from place to place where­ ever there was need. During a visit to France she saw 1! roi soleil, Louis XIV, and he approved her Congregation. She returned jubilant to Montreal in 1672 accornpanied by several novices. Bishop St.Vallier succeeded Laval in 1685. In 1688 he sumrnoned Marguerite Bourgeoys to Quebec and asked her to organize a general hospital. 2 This was to be a private charity and St.Vallier subscribed generously himself. When this organization was established four years later it was

1 Mlle. Marguerite Morel, Marguerite Bourgeoys et le Service Social. Unpublished and undated M.S. from the archives of The Centre Marguerite Bourgeoys, Congregation de Notre Dame, Montreal. 2 Not in the sense the term is used today. - 20 - operated by the Freres' Hospitaliers de St.Joseph de la Croix. It was authorized by charter .•• ••• to look after poor children, orphans, cripples, aged men, the sick and the needy of the same sex, to be lodged and boarded and assisted by them and their successors, in their needs; to occupy them in works suitable to them; to teach trades to the said children and to give them the best education possible, and all for the great glory of God and for the good and utilization of the colony.l Hence, the first attempt at technical education and of refuge. Later, when this work encountered difficulties, it was taken over by the Grey Nuns. This Order had been founded by Madame d'Youville in 1748. The Grey Nuns, or Sisters of Charity as they are formally called, began as a small group of lay women who banded together in 1738 to care for a small number of needy persons.

In 1688 Bureaux ~ Pauvres were established by the Supreme Council in Quebec, Three Rivers and Montreal. These were organized to distinguish between the honest poor and the lazy indigents of the time. There was a good deal of mendicancy during this period. These Boards were financed from the poor boxes of the churches, voluntary contributions of cash or kind and with an infrequent gift from the King. The lazy poor could be imprisoned or their diet restricted. Later, the work of the Poor Boards was extended to organize

1William Henry Atherton, Montreal, 1534-1914, 3 Vols. (Montreal: S.J.Clark Pub. Co., 1914), I, p.311. - 21 -

apprenticeship for children, to distribute food and to place the sick in hospitals. The directors of this work were lay volunteers and it is noteworthy that Bishop St.Vallier1 was not in favour of secular organizations for welfare and he was influential in having the boards disbanded. He also condemned the theatre, dancing, and immodesty in dress. He was a man of ability, pious, inflexible in his adherence to the principles of his faith, and a steadfast friend of the Colony's poor.2 Marguerite Bourgeoys died in 1700. She left behind a great heritage. She had started the first schools in Montreal and when she died these were already scattered about the province. She began the first work of training girls in domestic science, the first marriage counselling service in her care of the filles du roi who came to Ville Marie as they had come to Quebec. She established the first school of arts and crafts and provided the first services for children in need of protection. It has been said of her ••• .. ,. ;' Batisseuse hardie, institutrice emerite, religieuse exemplaire, fondatrice sage et prudente, Marguerite Bourgeoys a été tout cela. Et, c'est en étant tout cela qu'elle a été une travailleuse sociale puisque son gigantesque déploiement d'énergie a été bien avant que le monde moderne fournisse des méthodes scientifiques, une m~se, de"'toute sa personne, au service des mesadaptes et des inadapt~s de son temps, pour qu'il y ait plus de lumie~e, plus de douceur, plus d'amour et de beaute en eux et autour d'eux.

1Mason Wade, op.cit., p.25. 2 Alexander D. Angus, Old Quebec (Montreal: Lou~s Carrier, 1949), pp. 39-40. - 22 -

\ Cette belle aventure cornmencait ••• ,le seizieme jour de novembre de l'an de grace 1653, alors que la Bienheureuse Marguerite Bourgeoys foulait, pour la premi~re fois, le sol de Ville-Marie.l The settlement grew slowly, as shown on Table I which follows. It is to be remembered that the French are not a rnigratory race.

TABLE I

POPULATION OF MONTREALa 1642-1941

Year Population

1642 • • • 50b 1642 • • • • 72c 1650 • • • • • 196 1660 • • • • • 472 1667 • 766 1710 • • • 3,492 1720 • • • 5,314 1730 • • 6,351 1750 • • • • 8,244 1800 9,000 1809 • 12,000 1825 • • • 22,000 1831 • • • • 27,000 1839 • 3 5, 000 1844 • 44,000 1852 • 57,710 1861 • . 91,169 1871 • • • 115,000 1881 • • • • • • 155,238 1901 • • 219,616 1911 • 328,172 1921 • • 400,504 1931 • • • 618,506 1941 • • • 890,234 asource: Stephen Leacock, Montreal Sea~ort and City (New York: Doubleday Doran & Co., 1945), p.329. bEstirnated. cEnd of year. 1 Mlle.Marguerite Morel, op.cit. - 23 -

Early in the eighteenth century the state undertook the cost of caring for orphan children by providing nurses for the first eighteen months. After that the children were placed with habitant families in the country or in the towns, and they were obliged to remain with these families until they were eighteen to twenty years of age. The end of the French regime had little effect on the uncomplicated social services of the time. The religious orders were not disturbed except that war added to the burden of their charitable work. There was more poverty and illness among the population. Nuns and priests closed their ears to the sounds of war, and uncomplainingly ministered to the needs of the people. What fears they had of the future they kept within their hearts. But of one thing they were certain, temporal power was ephemeral; the power of the Church eternal. Piety, courage, and charity mark these early days. No door was locked, and no person went in need of anything which was within the power of a neighbour to supply. Work, prayer, defence and the conversion and teach­ ing of the savages--these were the principal labours of the people of Ville Marie.l

1 Angus , op.ci t., p.217. - 24 -

The English Regime 1760-1875

All institutions cannot be created suddenly out of nothing. All in­ stitutions to be effective come out of the mores, though the rational or inventive element is sometimes so great as to ~bscure the growth from antecedent forms. After the conquest there was little change in the social service structure. The Articles of capitulation were signed by Amherst and Vaudreuil in Montreal on September 8, 1760. They guaranteed that the nuns were to remain in their premises and to retain their privileges. The same consider­ ations for the Recollects, the Jesuits and the Sulpicians would have to await the King's pleasure2 but the. people were assured the free exercise of their religion and of their civil and property rights. Seldom has a transition of power from one nation to another been effected so painlessly. It was anything but the traumatic experience many subsequent historians and nationalists have painted. The nuns were given special financial aid by the British army. Provisions and fuel were also supplied because the clergy had helped to save so many British lives.3 The British at the outset made a wise and honest

1J.O.Hertzler, Social Institutions (Lincol n, Nebraska: University of Nebraska Press, 1946), p.82. 2Atherton, op.cit., p.43B. 3Wade, op. cit., p.49. - 25 - decision to continue the old administrative districts of Quebec, Three Rivers and Montreal, in which remained the French militia captains (capitaines de milice) to act as agents for the ruling power. These men knew their people and were close to the local clergy so that there was the minimum of change and no interference at all with welfare services. The Quebec Act of 1774, which Wade calls the Magna Carta of French Canadians,1 definitely established freedom of religion for Catholics, the rights of Catholic institutions and the continuance of French civil law. Only the criminal law of France was excluded. Though all the clauses of the Quebec Act were not entirely satisfactory to both sides, it is a remarkable instrument of tolerance and set an historical precedent for the subsequent development of the British Commonwealth of Nations. The clergy continued their works of charity as before on a non-sectarian basis, as they do today. Anyone in need, irrespective of religion, who knocked on the door of convent or hospital, received what help or hospitality there was to offer. The brief occupation of Montreal by the Americans in 1775-76 passed almost unnoticed by the nuns and priests. British religious tolerance had been appreciated and the woo­ ings of French Canada by Americans made little impression. It may well be that Canada was saved for Britain by the Catholic clergy of Quebec.

lwade, op.cit., p.63. - 26 -

The early English Protestants got along well with the ir Catholic neighbours. They even enjoyed the ho.spitality of the Catholic churches for their first religious services. There is a plaque on a building on the corner of Notre Dame and St.Helene' Streets in Montreal which reads ••• Here stood until 1866 the Church and Monastery of the Recollect Fathers (1692), in which the Anglicans from 1764 to 1789, and the Presbyterians from 1791 to 1792, worshipped.l With the ending of wars in Europe there began the flow of emigration to the new world which has never ceased since then. Many of these immigrants were poor and just as today, they included the adventurer, the discontented and the dissenters. Many of them had been persuaded to emigrate by the "unscrupulous agents of transportation companies."2 They had no money, save the priees of their fares, and cer- tainly no idea of the hardships that awaited them. There was also the suffering to be endured during the trip over in boats, sorne of which were as notorious as the early slave ships. Ocean travel was not much improved since the dreadful journey Marguerite Bourgeoys had made over two hundred years before. Most of these immigrants were on their way to Upper Canada, but there remained in the towns of Quebec and Montreal the orphaned, the widowed, the penniless and the sick.

1 Leacock, op.cit., p.79. 2 A Histor of the Montreal Ladies' Benevolent Societ , 1815-1920 Montreal, "n.d." Privately printed , p.l2. - 27 -

The religious could no longer, themselves alone, care for all who needed help. The English were obliged to est­ ablish their own charities. Also the English in Montreal believed that the soup kitchens of the Gentlemen of St.Sulpice encouraged mendicancy. Thus came to be established the first English Protestant institutions in Canada: the Female Benevolent Societies of Quebec and Montreal. From these can be traced the evolution of nearly all the Protestant welfare services that exist today, and, not only these, but educational in­ stitutions as well. The Female Benevolent Society was established in Montreal in 1815. Its purpose was stated as the relief of "indigent women with small children, the sick, the aged and 1 the infi·rm." In 1818 the society organized a tiny hospital which contained four beds. This was called the House of Recovery, which, a year later was re-orgenized and became the Montreal General Hospital, whose great new building towers over the city today, not far from the cross which Maisonneuve first erected in 1542. Stephen Leacock wrote ••• All the glory of the General Hospital, of the Royal Victoria and the Neurological, the Maternity and the Children's Memorial, all the immortality of Osler and of ••• the McGill immortals of today, still mortal-­ all this was there under the humble roof of the House of Recovery.2 The medical staff of that first hospital became, a few

1 Ibid., p.9. 2stephen Leacock, Montreal Seaport and City (New York: Doubleday, Doran & Co.Inc.), p.l49. - 28 - years later, the first faculty of McGill University. When the Female Society was organized there were no schools other than the convents, so classes were arranged and later private schools were organized. It was written in Hochelaga Depicta, published in 1837, that, "There is no place where, in proportion to the number and wealth of the inhabitants, more has been done to relieve the wretched and support the weak by deeds of real charity 1 than in this city." The tide of immigration continued. Five thousand 2 immigrants reached Montreal in 1816, and later there began the influx of Irish escaping from the potato famines. America gave Ireland the potato on which a large part of the population was reared; from America came the blight which destroyed the potato, and it was America which pro­ vided a sanctuary for the victims.3 Over two million Irish left their homes for America and many of them came to Canada. With the development of schools and the organization of the General Hospital, which, with the Hotel Dieu, provided adequate care for the sick of the city, the work of the Female Benevolent Society became confined to the care of orphans and destitute children. Consequently, it disbanded and there was organized in its place in 1822 the Protestant 1 A History of the Ladies' Benevolent Society, op.cit., p.l6. 2Ibid., p.25. 3R.J.Cruikshank, Roaring Century 1846-1946 (London: Hamish Hamilton, 1946), p.2. - 29 -

Orphan Asylurn. The supporters and workers were the same. The six Pounds remaining in the treasury of the Society on dissolution were turned over to the new organization. In 1832 an epidemie of cholera broke out in Montreal.

The disease was brought to Canada by the "Garric~', which carried 133 immigrants from Dublin, of whom 59 died on the way over. The epidemie quickly spread and from June lOth to the 25th there were 3,384 cases in the city, of whom 947 1 died. Montreal was in a state of panic, and destitution was rife. The Ladies Benevolent Society was re-organized, and emergency services, including a soup kitchen, were quickly established. From then on the Society, working side by side with the Protestant Orphan Home, flourished and continued its useful work until only a few years ago. In 1834 there began the formation of the national societies in Montreal. The reason for including mention of them here is that all were formed on the basis of self- preservation and to assist new immigrants. All had the dual role of fraternity and benevolence, which they have carried out to the present. The societies of St.George, St.Patrick, St.Andrew, and one for the Gerrnans were all formed in 1834-35. So also was the St.Jean Baptiste Society. The great organization of St.Vincent de Paul was formed in 1846. In 1856 the St.Patrick Society split into two and the Irish Benevolent Society was

1 Atherton, op.cit., II, p.l42. - 30 - created for the Protestant rnembers. As the years passed by social agencies were estab­ lished on the basis of need; the Montreal Maternity Hospital in 1843 provided training in obstetrics for McGill University medical students and for nurses; the Hervey Institute in 1847, and the Sheltering Home, whose origin dates back to 1858. These institutions were created because of the zeal and devotion of dedicated wornen. In the Sheltering Horne the first work with discharged wornen prisoners was done and is still being carried on by the same agency. In 1867 the British North America Act was passed, creating a federal state of the provinces of Ontario, Quebec, New Brunswick and Nova Scotia. The Act left exclusively to the provinces the ••• ••• establishment, Maintenance, Management of Hospitals, Asylums, Charities and Eleemosynary institutions in and for the Province, other than Marine Hospitals.l This clause and another, giving rights to the provinces over educational matters, set for ever, as it were, the traditional pattern of welfare services and separate ed­ ucational systems of Quebec. Another important piece of legislation was the per­ missive Municipal Code of 1871. Article 398 gives the municipalities the right ••• To establish and maintain poor-houses, houses of refuge or other establishments

1 B.N.A.Act, Section 92, sub-section F. - 31 -

for the refuge and relief of the poor and destitute; to give domicilary relief to the poor of the municipality; and to aid hospitals or charitable institutions established in the municipality or else­ where in the Province. This clause and those which followed provided the authority for the creation of institutions and licensing for the raising of funds to operate them. For years neither municipality or the Provincial Government granted fiaancial aid to institutions except in very modest sums. The funds required for welfare still came from the coffers of the Church and from the purse of private benefactors. - 32 -

. The Years of Transition 1875-1918

The nineties of the nineteenth century and the next decade witnessed the transformation of organized charity into organized social work. 1 Four factors led to a change in social attitudes regarding charity toward the latter part of the nineteenth century. First was the development in England of the Charity Organization Societies founded in London in 1869, This was the first attempt to integrate the social services and to apply scientific method to the complex problem of human re- lations. 2 The societies sought to carefully investigate requests for help, to register the applicants and it was hoped to consolidate financial appeals. Second was the development of the settlement movement, allied to the universities, which began in Toynbèe Hall in London in 1884. This movement was also closely related to the Charity Organization Societies and served to bring students and social leaders of the day in direct contact with poverty. Another factor, influenced and helped by the settle­ ments, was the effect which sociological surveys began to

1 Edward T. Devine, When Social Work was Young (New York: The Macmillan Co., 1939), p.l. 2Frank J. Bruno, Trends in Social Work (New York: Columbia University Press, 1948), PP.7 and 98. - 33 -

have on the community conscience. Le Play in France, later Charles Booth, Beatrice Webb, Rowntree and Bowley in England were investigating the causes of poverty. A new concept began to emerge that poverty is not inevitable; that indeed much of the disparity between the privileged and the under­ privileged was due to the social ignorance of the upper classes. This was not surprising, considering the punitive approach to charity which stemmed from the Poor Laws. The enigma was the growing wealth which had resulted from industrialization, yet the lack of improvement in the lot of the labouring class. At the same time poverty and riches were increasing. The leaders of the charity organization movement bad a plan for the resolution of the dilemma: teach the labouring man to make the most of such opportunities as he does have. The settlement movement ••• was con­ fident that if the more fortunate were to live among the less fortunate, they would learn to know realistically the problems of the poor and how to meet them.l Jane Adams visited Toynbee Hall and returned to the United States inspired to create Hull House in Chicago. Other Americans visited also and shared her enthusiasm with the result that the settlement idea spread in the United States. By 1900 there were over a hundred settlements in the country, and ten years later the number had quadrupled. Finally, Darwin's On the Origin of Species had been published in 1859 (three years after tQe birth of Sigmund Freud). Bruno states that Darwin's "theory of evolution was

1Ibid., p. 114. - 34 - the catalyst that broke up the old form of ethical philosophy as well as the more popular idea of the dynamics of human 1 behaviour." Darwin's theories started to have their effect toward the close of the century on the minds of the sociolog­ ists and the more progressive social thinkers of the day. In the United States the National Conference of Char­ ities and Corrections was organized in 1879. This organization changed its name in 1917 to the National Conference of Social Work. But even before 1879 many representatives of private and state organizations had been meeting separately and to­ gether to discuss the health and welfare problems of the time. The charity organization movement appeared in America in 1877,introduced into Buffalo by an Anglican clergyman2 who had served on a district committee of one of the London societies. The concept spread rapidly and was even more en­ thusiastically received in America than it had been in England. One of the most important adjuncts of the societies was the registration of cases by virtue of which co-ordination of effort could be theoretically achieved and duplication of service reduced. Thus, the birth of the Confidential Ex­ change, or Social Service Exchange, as it is now commonly called, took place. Out of the charity organization societies developed the concept of Associated Charities and Councils of Social agencies. It was then intended that the charity organizations would deal exclusively with service to families, and that

1 Ibid. , p. 2 5. 2Ibid., p.98. - 35 - the new organizations--the Councils--would concentrate on standards and plans for the development and co-ordination of social services. A further development was the advent of federated financing which accelerated the growth of Councils in order to provide the best advice for the spending of community funds on welfare projects. This aspect will be discussed later in the chapter on Financial Federation. Hence, welfare organizations achieved more clearly defined functions. The Councils which became the planning bodies could turn to the consideration and solution of such pressing problems as existed: child protection, foster home care, correction, public welfare, health and the care of the mentally ill, immigration, the development of professional attitudes toward social work and of social work education. These changing attitudes toward ftcharity" were slower to evolve in Canada than in the United States. The concepts which in England inspired many American leaders found their way to Canada via the United States. The late William Lyon Mackenzie King, at the age of twenty-two, having won a scholarship at Chicago University in 1896, lived in Hull House. The imprint of that year in Hull House was forever stamped on him, the most honorable mark of his career and perhaps its truest explanation.l

1 Bruce Hutchison, The Incredible Canadian,(Toronto: Longman's Green and Co., 1952), p.21 - 36 -

Later King won a travelling fellowship and studied the poor of London. In 1918 he published Industry and Humanity in which is to be found the blueprint of the welfare state he was later to create. The work of the charity organization societies was familiar to a few Montreal welfare leaders who travelled abroad,1 but it was not until the same people visited the United States and saw how the organizations bad been dynam­ ically adapted to the American scene that in 1899 a society was founded in Montreal and incorporated on January 22, 1900. This was the beginning of what is known today as the Family Welfare Association. By this time Canadians were attending welfare confer­ ences in the United States. In 1901 Francis H. McLean, first general secretary of the newly formed Montreal Charity Organization Society, addressed the National Conference of Charities and Corrections. The title of his paper was, it is interesting to note: Effects upon Private Charity of the Absence of all Public Relief. In Montreal since 1875 there has sprung up a plethora of agencies: The Salvation Army in 1884, the Montreal Day Nürsery in 1888. In the nineties: the Montreal Foundling and Baby Hospital, the Old Brewery Mission and the Victorian Order of Nurses. After the turn of the century the formation

1 Sir Herbert Ames Jeffery Burland Lady Julia Drummond Miss Helen R. Y. Reid and many ethers prominent in the welfare work of Montreal. - 37 - of new agencies accelerated. All of these were privately financed. Yet there were serious gaps in service and at the same time overlapping of service. Just before the first World War a Social Service Con- gress was held in Ottawa. Leadership came from the Presby­ terian and Methodist churches, "each of which had created strong social service departments as a practical 'works' arm to the fervent faith of their evangelistic missions ••• nl Speakers from Canada and elsewhere attended to discuss plans for integrating effort and national programs, plans which had to be deferred because of the war. It was World War One which brought Canada in line with welfare progress in the United States. The problems which had to be faced, particularly in the large cities like Montreal, were the same everywhere. All over the North American continent the same problems arose; the soldier's family, the need to plan for the return of veter ans, planning for the disabled and for the return to a peace time economy. All this was related to the philosophy the trauma of war had so painfully taught: that the tragic wastage of life must be replaced by conservation of life. Man turhed his thoughts to international welfare which he hoped might be achieved through the League of Nations. In Montreal during the war, as elsewhere, people had

1Charlotte Whitton, "The Canadian Council on Chi ld Welfare 1920", Caaadian Welfare, May 1, 1956, pp.3-7. - 38 -

learned how to work together i~ great campaigns for the Red Cross and the Patriotic Fund. There had developed an en­ lightened sense of the community's responsibilities for the welfare of its members. The emotional effect of war was a great priee to pay to learn such an essential truth. Julia Lathrop, disciple of Jane ~ams, and director of the Children's Bureau, formed in the United States not long before the war, as president of the National Conference of Social Work in 1919, "spoke of the necessity of the nation's being willing to invest heavily in the welfare of the common people during the coming years if the promise of advance in the social services was to be realized.n1 So far had America come. Montreal took her place with the other great cities on the continent in accepting this goal as the role of welfare for the future. In 19l8 Montreal's leaders were ready to organize for the implement­ ation of the new concepts of welfare which had been emerging since 1875 and which the fact and consequences of war had made vitally necessary.

1 Bruno, op.cit., p.237. - 39 -

Summary-Analysis

In reviewing the material presented in this chapter there are certàin salient factors which emerge. It is noted that welfare services in Quebec followed hard upon the heels of the explorer and colonizer. They were developed largely through the institutions brought to New France. The empty land required men; therefore families must be established; children propagated. The poor, the orphan, the aged and the sick must be provided the shelter and care of a Chris~ian society although that society existed in a wilderness. Skills required for the new civilization must be transmitted through the appropriate education. Men and women responded to these needs out of a spirit of piety, courage and Christian charity and through the social institutions to which they were born. These were largely the religious orders transplanted from France. Subsequently, under the impersonal forces of hunger, immigration and war, necessity gave way to self-preservation. Charity flowered into a fraternity of benevolence. Organ­ izations for welfare proliferated. In the very early history of Quebec the development and control of welfare services was vested in the religious orders and lay participation was discouraged. The financing of such efforts was accomplished through the Church, the benevolence of the King and by private subscription. - 40 -

This pattern continued among both English and French well through the nineteenth century. It had been legally anchored in the guarantees to French institutions and French civil law in the Quebec Act of 1774. It was perpetuated through the allocation to the provinces of exclusive juris­ diction over education and welfare in the· British North America Act of 1867. In the French community welfare services continued their development in the twentieth century according to this traditional pattern now formalized in religious institutions and the law. This trend was reinforced by the insulation fostered by another language. This set of circumstances was to continue for a long time to come. The English population, however, because of cultural kinship with dominant groups in North America, and because of greater communication with a large part of the continent resulting from a common tongue, was more sensitive and re­ sponsive to vital forces at work in the English-speaking part of the Western world. As the industrial revolution moved inexorably on to a mounting crescendo and as the increasing contrast of wealth and poverty became more obvious, charity merged into social reform. This new dimension to welfare activity was rein­ forced as industrialization continued. At the end of World War I there had emerged a definite interest in and trend toward social reconstruction on a world scale. While the French community, though not unaffected by - 41 -

these events, was still attuned to the welfare traditions of France and the ethics of Rome mediated through the religious and legal structure of Quebec, the English population was more immediately receptive to the influences of the settle­ ment movement, the social surveys and the impact of the secular sciences. It was to be expected that the English should respond more readily to the influences of the new thinking as expressed through the Charity Organization Soc­ ieties, national welfare conferences and the beginnings of professionalization. There had been a strong spirit of non-sectarianism and non-discrimination in the welfare services of both the English and the French, which spirit indeed continues on, notwithstanding common impressions to the contrary. But by 1918 there was, among the English population in the rapidly growing city of Montreal, a definite sense of urgency to break away from traditional practices--an urgency to implement the evolving philosophy of the time, to practice new concepts of organization for the purpose of eliminatingduplication of service and wastage of money. It was at this point of temporary cleavage that the Montreal Council of Social Agencies was formed; and it was perhaps this significant difference in the direction of development of two ethnie groups which was expressed in the formation of the Council. - 42 -

CHAPTER II

THE FORMATION OF THE COUNCIL

Aristotle said 2,300 years ago, "thought moves nothing." There never was an idea that solved any problem, that accomplished anything until sorne man or woman or sorne organization was harnessed to that idea and went into a~tion and made it work.l

Introduction In the previous chapter the writer .examined the events which occurred from the founding of the first settle­ ment in New France through World War I. These events established the basis for the formation of a Council in Montreal and determined the social milieu into which it would be created. This chapter will deal with the actual process of its formation. Councils of social agencies grew out of the Charity Organization Society movement introduced into the United States in 1877. Their organizational structure, as understood today, stems more directly from the early 1900's. One of the first to be formed was the Associated Charities of Pittsburg which was established in 1908. That same year the Winnipeg

1 Ben Solomon, "Why We Have Not Solved the Delinquency Problem", Federal Probation (Washington: U.S.Department of Justice, Det. 1953). - 43 - Associated Charities was organized by John Howard Toynbee Falk, who was later to come to Montreal and to become a key figure in the organization of the Council here. The material for this chapter is derived from bound records of the Council which include minutes of meetings, re­ ports and correspondance between the interested parties. The records, while appearing to be fairly complete, do not include notes of many conversations which took place between the organizers and the members of the boards of the agencies existing at the time. Such notes, had they been kept, would have added depth to the recorded material. However, a part of this record, which is of major in- terest, pertains to the activities and personality of a par- 1 ticular person, J.H.T.Falk. The writer has had the good fortune to have benefitted from personal conversations with 2 relatives of Falk and co~workers who knew him intimately --so

1"Falk is Dead", Canadian Welfare, (Ottawa: Canadian Welfare Council, April 15, 1950), pp.l7-18. Canadian Welfare, (Ottawa: Canadian Welfare Council, May 1, 1956, Commemorative Issue. Obituaries which appeared in the Montreal Star, April 17, 1950, and the New York Herald Tribune, April 18,1950. 2 conversations and correspondence with his daughter, Mary, now living in New Jersey, u.s.A. She married her first cousin, Peter D., son of Falk's brother, Oswald. Conversations with Miss Kathleen Moore, well-known Montreal volunteer worker, who met Falk at a conference in the United States prier to his coming to Montreal. She attended courses in the new School of Social Workers at McGill and has been closely associated with Council activities from the beginning. Conversations with G.B.Clarke, who retired as General Secretary of the Family Welfare Association in Montreal on March 31, 1956. Mr. Clarke was associated with Falk in Winnipeg and later in Montreal. - 44 -

recent are the events with which this chapter deals. This period will be dealt with in the following sections. The first section will outline the efforts of the Dominion Social Service Council to form a branch in Montreal, the reasons why the Montreal group decided to organize an independent Council and the steps which lea to its formation. The second section gives a description of Falk's background in England, his personality and qualif­ ications and his career after his arrival in Canada. The third section will discuss the survey Falk carried out in Montreal. The fourth section will describe how the recommend­ ations of the survey were implemented. The fifth section deals with the first annual meeting, and the final section contains the summary and analysis. - 45 -

Preliminary Meetings In the autumn of 1918 a Quebec Provincial Branch of the Dominion 'Social Service Council was formed. A little later it was suggested that a Montreal City Branch of the Provincial organization be set up. Such councils in other provinces and cities had been organized on a non-sectarian basis where racial and religious divisions were less defined than in Montreal. These councils had been created through a growing social service movement which had developed within the Methodist and Presbyterian Churches. Nowhere had the councils been able to involve the Roman Catholic Church. Therefore, it was felt by those Montrealers who attended the preliminary conference that a body organized for co-operative action should be set up on non-sectarian lines and independant of both the 1 Dominion and Quebec Social Service Councils, with the hope that Roman Catholic and Jewish agencies would participate. A meeting was called in January, 1919, and held in the Y.M.C.A. Representatives from twenty-five charitable and public agencies were present to discuss the advisability 2 of forming a Montreal Council of Social Agencies. The chief speaker of the meeting was the Rev. Mr. Agar, General Secret­ ary of the Social Service Council of Ontario.3 He described

1The Social Service Council was founded by Dr.J.G. Shearer and Dr. T. Albert Moore, great social leaders of the Methodist and Presbyterian Churches in Canada. 2 see Appendix B, List of Agencies attendin~ p.1494 3His presence at the meeting suggests that the Social Service Councils had accepted the decision of the Montreal group to organize independently. - 46 - the organization and function 0f the Council in his Province. His address and the remarks of others present at the meeting engendered much enthusiasm and a r.esolution was adopted, a phrase of which reads, " ••• it is desirable to form such a council in order to co-operate with the various social forces

i n our CJ.. t y ••• "1 It was decided to adjourn the meeting so that those present could find out the attitudes of their respective boards and elicit the views of other organizations not represented at the first meeting. On March 24th they reconvened and decided that there was sufficient interest in the project to proceed. A constitution was approved and a month later by-laws were passed. The Council was an established fact, at least on paper. What was to be the scope of the work the Council could perform? Those concerned in the project believed that this question could be answered only if the total welfare needs of the Protestant community were known and also what services were available in the non-sectarian agencies (sorne with church affiliations) already in existence. Consequently, it was decided by the executive committee of the Council to form a survey committee to study the local situation, as had been done previously by Jewish Federation for the Jewish community. The survey committee engaged the services of Mr. John Howard Toynbee Falk as Executive Secretary. He it was who

1 Bound Council Minutes, 1919-1921, p.l. - 47 - 1 became the chief architect of the Council, and the report which he drafted along with the committee is its cornerstone. So important was the influence of Mr. Falk that before discussing this report the writer deems it necessary to dwell for a moment on his personality and his qualifications for this task.

Howard Falk

John Howard Toynbee Falk was born in England in 1881 and educated at Rugby School and Balliol College, Oxford. His father, Herman John, had been connected with· sorne of the first modern welfare developments in Germany. The family had established a philanthropie society in Danzig in 1813 and also an institute for the care and education of neglected children. vfuen Howard Falk's father went to live in England he carried with him the family tradition of philanthropie enterprise and he lost no time in getting in touch with the great social leaders of the day in England. He married into 2 the Toynbee family, a member of which was Arnold,3 beloved and practical social reformer whose memorial was Toynbee Hall,4

1 Re~ort of a Committee of the Montreal Council of Social A~encies,eing the Findings of a Social and Financial Survey o Protestant and Non-Sectarian Social Agencies of an Undenom­ inational Character in the City of Montreal, Montreal Council of Social Agencies, 1919. 2Rachel, sister of Arnold Toynbee's father. She and her husband were both active in social reform. 3"Arnold Toynbee", Encyclopaedia Britannica, 1951 ed., Vol.22, p.338. ~oynbee Halr~ Encyclopaedia Britannica, 1951 ed. Vol.22, p.338. - 48 - the first settlement house in London. Young Howard Falk grew up surrounded by the growing humanitarian atmosphere of the nineteenth century. He met many of the great social leaders in his father's bouse and later at Oxford. Among these was Canon Barnett who had founded Toynbee Hall at a meeting in Balliol Collage in 1884, and Charles Booth who had completed one of the first great social surveys which dealt with conditions in East Side London. Such people as the Webbs and Octavia Hill were known to Falk as a boy and later also Harold Laski. His choice of a college at Oxford was significant too, for it was Balliol which was most closely identified with settlement work in London. As an undergraduate he joined in the work at Toynbee Hall where he came to grips with poverty and its resultant problems. He met there sorne of the founders of the first American settlement houses who spent sorne time at Toynbee Hall or consulted Barnett, and they talked of the need for 1 social and welfare workers in the United States. After he left Oxford, Falk was apprenticed to a firm of grain merchants2 in London and Russia. He came to Canada in 1906 and was for a short time with the Northern Grain Company in Winnipeg. He came under the influence of

1 "Social Settlements", Encyclopaedia Brittanica, 1951 ed., Vol.20, p.903. 2 Who's Who in Canada, p.ll8, (Toronto International Press Ltd., 1927), The Diamond Jubilee of Confederation edition. - 49 -

J. S. Woodsworth, tireless rnissionary welfare worker of the 1 Methodist Church and founder of the C.C.F. Woodsworth adrnired Falk from the beginning of their acquaintance. Later in the year Falk was offered a position as director of boys' work in Christodora House Settlement in New York City. On the boat coming over from England he had met some Americans who were interested in the settlement and they were greatly taken with him. He accepted the offer and thus began his professional social welfare career. Two years later Woodsworth, rernembering Falk's enthusiasm and interest in welfare, invited him to return to Winnipeg and do a survey of local agencies with a view to federation. Falk accepted and when the survey was cornpleted he became the first secretary of the Winnipeg Associated Charities. Sorne time later another young Englishrnan arrived in Winnipeg who was to have a great influence on child and farnily welfare in Canada. This was G.B.Clarke, who becarne closely associated with Falk and who, at Falk's behest, joined him in Montreal in 1924. Falk was a man of tremendous and restless vitality. His love of adventure made him a born pioneer, and the youth­ ful progressive spirit of the west provided him with an ideal opportunity for the expression of his boundless energy. He was imbued with a sense of public justice and order and with

1 co-operative Commonwealth Federation. - 50 - an intense and abiding regard for the rights and values of the individual. Through his influence and that of his associates Manitoba became a leading force in advanced social concepts. It was the first province in Canada to enfranchise women, to enact mothers' allowances and to integrate its child welfare services. Winnipeg was one of the first Canadian cities to organize a social service exchange, to develop an effective Children's Aid Society and to think in terms of a cohesive and consistent system for its welfare projects in social planning, budgeting and finance. Falk's character was full of contradictions. His per­ sona! and family life was not happy. His need to love and be loved was never satisfied and though he accomplished great things in the public interest he sought in vain all his life for persona! happiness and serenity. He had a consurning am­ bition and an almost childlike need for public recognition. Nor could he ever remain in any place for long. He was at once charming and tyrannical; he was most attractive to women, and he used his power over them to accelerate his purpose time and time again. Those women who knew him well outside the family circle admired him greatly and none suspected him of subtle manipulation. A friend once called him an infidel, (Falk was a Unitarian) but whatever his private faith, his belief in man's inalienable rights never faltered. During the first World War Falk served with the Red Cross and the Patriotic Fund, and it was in these organizations - 51 -

that he first met many of the men and women from Montreal who were the leaders, or became such, in charitable work in that community. In 1917 he went to Halifax to head the Canadian vol­ 1 unteer workers following the Halifax Disaster. Shortly after his return to Winnipeg in 1918 he was invited by Professor R.J.Dale of McGill to organize and head the first McGill School of Social Workers. He arrived in Montreal in the summer of 1918 to assume his new post. With his past experience, particularly in Winnipeg, and through the personal contacts he had already made in Montreal, it was not long before he was identified with the group which beeame the nucleus for the organization of the Council. It was only natural that this group should turn to him for ad­ vice and help. This man, whose character, to his friends and associates, was a paradox, whose weaknesses were indeed the motivating force for much of the good he accomplished, was to play the . leading role in the affairs of the Council for the next ten years until his restless spirit and his discontent caused him to move again to other fields.

1"Halifax", Encyclopaedia Britannica, 1951 ed., Vol.II, p.94. In 1917 a French steamer carrying 3,000 tons of T.N.T. exploded in the harbour on colliding with a Norwegian ship on its way to Belgium with a cargo of relief supplies. About one-tenth of the city wa s devastated. - 52 -

The Survey

The word philanthropy means nothing if it does not imply that our philanthropie activities represent our love for our fellowman; there can bi no love where there is no knowledge. The survey committee was composed of seven persons, including Falk, who acted as secretary and directed the work of the committee. Eighty agencies were studied, and the income of sixty-five were analyzed as were the subscription lists of thirty-four. Work on the survey began in May, 1919, and was completed the following November when a printed re­ port was submitted to the executive committee of the Council. The report 2 is in four parts. First there is an analysis of income. Second, a section was devoted to the social aspects of the survey. Third, the recommendations of the committee were set forth. The fourth section contains two articles published in the Montreal Star which were used to interpret to the general public why it was felt the Council should be formed and the logic of financial federation. A great deal of publicity was needed because the idea of joining together was not accepted as advisable by many individuals and organizations. There was fear on the part of sorne that agencies would lose their autonomy, and they were loath to accept controlswhich they felt were bound to be irnposed. The Falk Survey will be considered in sorne detail because

1 Op.Cit., p.l?. 2 Ibid. When referring again to this report the writer will call it "The Falk Survey" or "Survey". - 53 - it became the blueprint for the structure of the Council. It stated clearly the philosophy which should lie behind this organization, and it laid down the basic structure upon which the Council should be built. It was the intention of the organizers when the Council was being planned to unite at the same time for the purpose of raising funds, but this idea was postponed due to the re­ luctance, already referred to, of agencies to lose control of fiscal matters as well as other questions of administration and policy making. It was felt that the most important thing was first to unite as many agencies as possible in an atmos­ phere of co-operation and thereby to prove that by working together the goals of the founders would be achieved. This was considered a wise decision at the time because from the beginning mutual confidence ~ in fact engendered and it was evident very early that the Council had good chances of be­ coming the dynamic force in the community which its planners had envisioned. Actually, as we shall see, financial feder­ ation was achieved much earlier than might have been expected.

The financial aspects of the s~vey will be dealt with in a separate chapter on Financial Federation. The section devoted to the social aspects of the survey was written by Falk himself and at his request signèd by him alone, though approved by the committee as a whole. Falk believed that the ideas embodied in this section were much his own. Perhaps he thought these ideas were somewhat revolutionary. If he expected an unfavourable reaction he - 54 - wanted to be in a position to state that this part of the report was entirely his and not the opinions of the whole committee. His ideas were somewhat advanced for the time, certainly in Montreal, though they seem today to be quite conservative and sound. The preamble began by stating two concèpts upon which the welfare and prosperity of the country depended. 1 The development of right relations between labour and capital. 2 Increased production. The gulf which existed between labour and capital was due to lack of mutual understanding. Falk believed the social worker was in the best position to act as interpreter in bridging the gap betwen the two. Every defective, delinquant or dependent person is a consumer, not a producer, and as such is a direct loss to the nation. It is the duty of social workers not only to bring back the non-producers to a state where they can produce again, but also to prevent thçse who are producing from falling out into the non-productive class. There is no real conflict between the action demanded by hurnanity in the name of Justice and the action demanded by industry in the name of efficiency, but the recognition of this fact will only come with a change in the hearts of men.l This seems quite a credible statement, but the con­ cept of man's duty to his fellows and the right of man for the basic necessities of life were not as well accepted in 1919 as they are today. The experience of the war years,

1 Ibid., p.l?. - 55 -

1914-1918, had served to open men's minds to the realization that the punitive approach to charity was out of date; that the respect and dignity of the needy must be restored and maintained and that this is a community responsibility. The methods by which this is accomplished are_ well understood by social workers today through the teaching of case work and social group work practice and the provision of categories of maintenance relief. It was not so clear in 1919. Falk proceeded to analyze the information collected during the survey. He found weak board structure in many agencies. Attendance at meetings was irregular. In sorne cases there was no board of management at all. Sorne boards even sat without their chief executive officers being present. "In sorne cases this is directly due to the fact that the Board considers the worker socially an inferior.1

Boards composed ~~~ both men and women were the exception and he thought this unfortunate because both sexes had much to contribute. In sorne agencies the members of the board seldom visited any part of the institution other than the room in which meetings took place. Falk commented that com­ petition for financial support was responsible for much bad feeling between agencies. Moving on to staff Falk wrote that the type of exec­ utive officers chosen corresponded directly to the type of board which was in office. For sorne, social service was not a vocation but a chance job; for others, altr uistic motives

1 Ibid., p.l9. - 56 -

were keeping them in positions where salaries were inadequate-­ but this was true of the profession as a whole. Thirty-seven years later it is still true but, fortunately, not to the same degree as in 1919. In this respect the writer is reminded of a charming remark made by Mr. G.B.Clarke at a luncheon held sorne time 1 ago. He was talking of the early days in social work in Canada, the very period with which we are dealing. He said that from the point of view of professional education in those days there was not much difference between the pro­ fessional worker and the volunteer. They both worked side by side performing much the same tasks. The difference, if any, was that the volunteer helped raise the money to defray the paid worker's salary. Falk continued to develop the relationship which should exist between paid executive officers and boards of manage­ ment. He urged social workers to form an organization which would improve professional standards and provide them with a tool for united effort. This section of the survey went on to develop the need for increasing volunteer participation. Falk preferred that women work within the agency setting rather than organize bazaars and social functions for the benefit of their pet charities. He believed they needed to come to grips with

~i-annual meeting C.A.S.W. Montreal Branch, May 23, 1956. Mr. Clarke, who had recently retired as General Secretary, F.W.A., was seconding the reports. - 57 - the problems presented every day if they were to do efficient

He wrote of the need for social diagnosis and stated that of the eighty agencies studied less than a dozen were using the Confidential Exchange operated by the Charity Organ­ ization Society; nor did most of the agencies keep adequate records, and there was little effort expended to avoid dup­ lication of service and the consequent wastage of money. There is no hope for social reform except it be based on accurate diagnosis. From this it follows that the accumulated ex­ perience of such diagnosis can only be utilized if it is accurately recorded. 1

The annual reports of agencies were touched on and th~ importance of their content was stressed. The necessity of the participation of the executive officer in their preparation was emphasized as was their value in developing public relations, though Falk did not use those words. The intro­ duction ended with a plea for sorne beauty within the institution to nourish the souls of those who dwelt therain. Beauty and cleanliness could be secured at the cost of but a modest expenditure of monay. The remainder of this section of the survey Falk divided under five headings: The Sick and Handicapped Dependants and Partial Dependants Educational and Recreational Child Welfare Delinquent

1 Ibid., p.22. - 58 -

Under these topics he listed the appropriate number of the eighty agencies covered. He then analyzed the fac­ ilities available in the comrnunity and the lacks. Here the lacks will be stressed, though in his report Falk was not by any means entirely critical of the situation as he found it in Montreal. Sick and Handicapped--Under this heading he dwelt on the lack of sufficient financial assistance to care for the "poor sick". How familiar the words sound. He wrote of the ignorance of public knowledge with regard to the need for hospital space for the communicable diseases and for tacilities for the mentally ill, for tuberculosis control and for convalescent care. Dependents and Partial Dependents--The Charity Organization Society had been caring for French-speaking familles and the suggestion was that this organization should cease looking after this group, not for reasons of ethnie or cultural bias but because they could not afford it. There was overlapping in the care of homeless men and yet there were four private agencies in addition to the Meurling Refuge working in this field with no co-operation between them. The problem of the unmarried rnother was included. Here too there was duplication of service. Educational and Recreational--He found insufficient recreat­ ional resources intensified by the lack of compulsory education. He believed that school buildings and playgrounds should be used for recreation. There was an urgency for more parks and - 59 - he felt that the work of the Boys Scouts, Girl Guides, the Y.M.C.A., etc., should be extended. Child Welfare--Much space was given to this subject. Falk began by postulating the child's right to be born and to be well born, in the physical sense. This presupposed the ex­ istence of basic services for prenatal care and for child birth and postnatal care of mother and child. The report stated such services were woefully inadequate in Montreal. The city was losing 178 of every 1,000 children, compared with 93 in the slum areas of New York. Fundamental standards upon which any child welfare programme should be based had been formulated by the Manitoba Government Royal Commission of Enquiry into the Welfare Work of the Province. Falk was well aware of these standards since he himself had helped to formulate them. He quoted them at length as basic formulae. He stated that there could and should be a re-arrangement of child services in Montreal which would avoid duplication and provide more specialized types of care which were required. He remarked that already, as a result of the survey, certain improvements had been brought about. Delinguent--In this final sub-section the appalling con­ ditions of the Fullum Street Jail were discussed, and the need for reorganization of the Girls' Cottage School. Mention was made of the need for improved services for discharged prisoners, and lastly, there was a discussion on the need for reorganization of the work done for the protection of women and children. - 60 -

In summing up Falk wrote that though he felt sorne of the agencies studied were apathetic, if not definitely opposed to any reorganization of function, nevertheless he thought the majority were receptive to the idea of a council. This would result in the pooling of knowledge and working together for the benefit of all. Recommendations--Following the first part of the survey which was written by Falk, came the recommandations of the survey committee. They are very short and suggest that the committee members believed that the important part of the report was Falk's section, just discussed. The recommandations dealt mainly with structure and began with a frank statement " ••• that it would be impossible to get the working co-operation of several hundred agencies, as should be the case, if the Montreal Council were to include all Roman Catholic, Hebrew and non-sectarian agencies."1 Nevertheless, it was re- commended that efforts should be made to encourage the formation of three councils, one for each religious group, and to super­ 2 impose over these a "Central Committee on Co-operation". The English welfare community has never been too realistic in its approach to this idea. To the Anglo-Saxon mind feder­ ation is the logical method and is economical. But the English are a minority group and the formula of federation is contrary to the individualistic philosophy which still per­ meated French culture.

1Ibid., p.35. 2 Ibid., p.35. - 61 -

It was then proposed to set up a non-sectarian Council of Social Agencies divided into five divisions: Sick Dependent Delinquant Education and Recreation Child Welfare Falk said that the social agencies of a community divide naturally into the first four areas listed above but as child welfare work falls into each of these he thought it wise to add an additional division. It was recommended that each agency be represented by two delegates, one a member of the board and the other an executive officer.1 The executive of the Council would con- sist of an equal number of appointees from each of the five divisions. If an agency's work and interest fell into more than one division the agency must decide which division it preferred. Each division would elect its own honorary officers and the Council executive would appoint its own chairman. The officers of the Council as a whole would be appointed at the annual meeting.

1 Increased to three when the structure was formally approved. - 62 -

Montreal Council of Social Agencies

Outline of Organization1

The Council Appointed by Council at large • • President Vice-President Hon.Recording Secretary Hon.Corresponding Secretary Hon.Treasurer Executive Committee Appointed by the Committee consisting of Division Delegates • • Chairman Vice-Chairman Executive Secretary Function 1 Survey and Research 2 Social Service Directory 3 Publication of the Social Worker Monthly 4 Organization of Annual Conference in Montreal 5 Operation of the Confidential Exchange Sub-Committee 1 Local Annual Conference of Social Work 2 Finance · 3 Survey and Research 4 Publicity and Publications 5 Confidential Exchange

Under the heading "Purpose of Organization" the committee agreed that the Council "attack" a single problem with the combined force of all agencies in the Council, and they suggested Housing as one of the most pressing. The divisions would endeavour to secure the co-operation

1op.cit., pp.35-36. - 6~ -

of all their constituent agencies in furthering the plans of the Council executive, and they would all work toward the development of social work in Montreal. Discussing the administration the committee recommended the appointment of a chief executive officer of proven ab­ ility and endowed with a knowledge of social work problems. His assistants at the beginning were to be one stenographer, one typist clerk and one other clerk. The recommandations ended with an estimated annual cost of permanent staff and overhead of $g,ooo, to be borne by the agencies on a basis to be worked out later. It was suggested that a permanent organization should not be set up unless there were a sufficient number of agencies enrolled to make it worthwhile. 1 The recommandations were signed by the following: Elsie Reford (Mrs. R.W.) Elizabeth D. Drummond (Mrs. Arthur) George Lyman R. J. Dale A. M. Irvine, Chairman

·. Implementation of the Survey Report

The survey report was submitted to the Council at a meeting held late in November, 1919, when the thirty-nine agencies were represented. It was then decided to communicate with all agencies covered by the survey, asking them to appoint an official delegate to attend a meeting to be held the follow­ ing January. This delegate would be authorized to declare whether or not his or her agency would join the Council.

1All are deceased, with the exception of Mrs.Reford. - 64 -

During the intervening period the members of the executive committee, individually, wrote to or called upon their friends on the boards of many agencies, urging their membership in the Council. These men and women realized that if the Council was to be an effective instrument there must be the widest possible co-operation and participation. A total of twenty-five agencies attended the January meeting and all these had decided to join. Eight ethers were still undecided. The meeting adjourned for another five weeks to give ample time to communicate with those who were still undecided, and all of these were given a list of those who were joining. At the next meeting thirty-one agencies attended and the final decision to go ahead was reached. The delegates went back to their agencies to elect official representatives: two from the board, and the chief executive officer automatic­ ally by virtue of his or her position. The final meeting of this preliminary organizing period took place on April 30, 1920. At this meeting, which might well be termed the first 1 official meeting of the Council, officers were appointed and the divisions were set up with the following labels -which were only slightly altered from the recommendations of the survey: 1 Sick and Handicapped 2 Dependency and Delinquency 3 Recreation and Education 4 Child Welfare

1 The first officers were: President ••••• Jas. Brierley Vice Presidents •• Mrs. Arthur Drummond, Mrs.R.W.Reford, George Lyman, Dr.Colin Russell Treasurer ••••• Col. Wm. Leggatt Secretary ••••• E. R. Patterson. - 65 -

A year and a half had passed since the idea of the Council was first broached. Just one year had passed since the constitution had been approved. To many this had seemed a long and anxious period of waiting and negotiation but it was an initial test in patience, a virtue which would become a corporate quality and strength of the Council in the years which lay ahead. The divisions of the Council now began to organize and to start functioning. Their activities during this first year will be discussed later. In October the first plenary session of the Council took place. The speaker was the Provincial Director of Public Charities, Dr. A. H. Desloges. He made a number of pronouncements which are interesting to read thirty-seven years later because several of the subjects which he touched upon are still live issues and unresolved today. He announced that the Provincial Government had com­ pleted arrangements for the establishment of 1,200 bed hospitalsfor tubercular patients. He stated that the Govern­ ment was ready to improve the efficiency of the Juvenile Court in Montreal by adding to the staff. He said that the Prov­ incial authorities were about to re-apportion categories of subsidies to private agencies providing certain standards were maintained. He announced that the Board of Health had developed a programme for combatting venereal disease, tuber­ colosis, and infant mortality. He ended his address by

informing the audience that the Quebec Government was favourably - 66 - disposed to the establishment of a hospital for epileptics and the feeble-minded (adults and children) as soon as finan­ cial conditions permitted. He asked the Council to support him by passing resolutions approving the establishment of such an institution and hoped "that the Council would persist in importuhing the Government in the development of its social programme", saying that the Government's responsibility, now that Quebec had a population of two and a half million, was to take care of the insane, the blind, the deaf and dumb, the destitute children, leaving still a large field for private 1 philanthropie effort. The Oouncil passed suitable resolutions and they were forwarded to the member agencies for endorsement by their boards, after which the resolutions were transmitted to the Provincial Secretary. One of these resolutions was as follows: This Council hereby wishes to go on record as heartily approving the Government's in­ tention to strengthen the work of the Juvenile Court by increasing the Court's staff of social workers and probation officers. 2

First Annual Meeting

The first annual meeting of the Council took place on Friday, January 2S, 1921, with delegates representing thirty agencies present. There were also a number of invited guests. The President, Mr. James Brierley, presided. He announced

1 Unbound Council Minutes, 1920-21, p.26. 2 Ibid, p.27. - 67 -

that Falk had been appointed executive secretary of the Council at the beginning of the year. A sub-committee had been looking for a permanent executive since the previous May, since which time Mr. John Kidman had been acting as executive secretary pro tempore. Falk was persuaded to undertake the secretaryship on a part-time basis while still carrying on his duties at McGill. Mr. Brierley, in his presidential address, said: ••• the delays in perfecting the new organ­ ization as a piece of working machinery, onerous as they seemed, have been shown to have possessed much value by giving time for a clearer realization of the aims of the Council and of the means whereby they may be attained. A strong body of opinion as to the absolute necessity for common action, and therefore for the elimination of all misunderstanding between agencies has been created, and must have a potent influence on the future of the Council.l Later he added "that by co-operation overlapping of effort would not occur." He referred to the effectiveness of con- centrated effort in regard to legislation and also the re­ sponsibility of the Council in creating services which were lacking in the community. At the meeting the Divisions reported on what had been aêcomplished during the year 1920. The Child Welfare Division, with ten member agencies, had been concerned with the Belmont Boys' Home which had been closed because it was no longer needed. They had also been working on the need for facilities for the feeble-minded, with the problem of mal­ nutrition of children and the pasteurization of milk. They

1 Ibid., p.l44. - 68 - had studied the question of foster home care and the extension of day nursery services to look after the children of mothers who were working or in hospital. The Dependency and Delinquency Division, with twelve agencies, had made a survey of correctional institutions in the city. They were considering the care of the needy aged, the problem of homeless men and family desertion. They were studying the operations of domestic relations courts elsewhere and how such a court could be established in Montreal. The question of legal aid and a public defender's bureau was on the agenda. They were also concerned with a reorganization of the Girls' Cottage School which did not receive financial support from the Government. The Recreation and Education Division, composed of eleven agencies, had been working on the development of supervision in parks and playgrounds, work with camps, a central bureau for the distribution of educational pictures ; and it had offered to assist the Dominion and Provincial Boards of Education in the teaching of English to foreigners. The Division had arranged a special six weeks' leadership course at McGill University for work with older boys and girls. The average attendance had been fifty-nine persons r epresenting seven agenci es. The Sick and Handicapped Division did not submit a report to this first annual meeting. There were six agencies in the Di vision but they had met only once and had not yet decided on programme. - 69 -

Thus the organizing period was over. The first critical year had ended. The launching of this new comrnun­ ity organization was greatly facilitated by the able and skillful direction of Howard Falk. It was fortunate that he arrived in Montreal when he did. However, Falk possessed a peculiar genius for arriving in places at times of great personal opportunity. He had served a valuable apprentice­ ship in Manitoba. His experience there made him the ideal person to spark the new venture in Montreal. His love was the "doing" of social work, not the "teaching" of it, so that he needed little persuasion to accept the post offered him by the Council. The problem was to arrange for him to be released by the University on a part-time basis. This was finally worked out in conferences between the University authorities and members of the organizing group of the Council. - 70 -

Summary-Analysis

The events herein described have a bearing on four aspects of the Council which are important in regard to its subsequent developments: (1) Relative identification with the English minority and the French majority, (2) the methods and approaches in organizing English agencies, (3) the rationale for welfare activity, and (4) the programme and or­ ganization of the Council.

Community Identification There was obviously a continuing awareness on the part of the Council founders of a kinship with the dominant cultural group and a need to work with it. The Dominion

Council~-an English Protestant organization--was rejected ·in the hope that the Jews and Catholics would come into the Council. Also, the first report, in spite of a tendency to implement the new perspective on and the new philosophy of welfare activity, did propose a Central Committee for Co­ operation. There was in the first annual report of the President ample recognition of the dependency of welfare programmes on government as well as of the importance of legislation to Council activity. The burden of emphasis, however, was on development of the English programmes without particular regard for the French, if not on actual withdrawal from them. The first indication of this is seen in the choice of Howard Falk to conduct the initial survey. Falk was an Englishman of - 71 -

Unitarian faith, steeped in the tradition of reform, if not of social revolution. He was intimately related to the Settlement Movement. His experience had been primarily in Western Canada. His was the personality of the reformer and the radical. It was not to be expected that he should be primarily concerned with preserving traditional community patterns. He, of course, did not have the advantage of the community organization concepts of a later day, out of which might have come a greater concern for analysis of cultural forces. There was frank recognition that it would have been difficult, if not impossible, to secure the co-operation of many agencies of different ethnie groups. The focus of in­ terest was almost exclusively on the problems of the English community. There was a clear decision to cease giving ser­ vices to French-speaking persons because of financial considerations. There is no record of consultations with, or advise­ ment of, leaders of the French group on these developments. And finally, the recommendation regarding the Committee on Co-operation was not implemented until twenty years later. If the dominant attitude of the English was one of division, it appears that this was also the attitude of the French--at least as revealed in the remarks of Mr. Desloges, the then Provincial Director of Public Charities;-in his address to the first plenary session of the Council. His suggestion, it will be remembered, was that the Council should - 72 -

"importune" the Provincial Government on various proposals. Whether Mr. Desloges was speaking simply as a polit­ ician, or out of an inadequate appreciation of social forces, or from misjudgment of the attitudes of the French community, his interpretation of the Council is by indirection that of antagonist to the Provincial Government. Although it is not within the scope of this study to evaluate closely the results of these choices, it dees seem necessary to record that in the initial planning and im­ plementation of the Council idea there was a clear separation of the two communities in regard to welfare activity. Did this decision to move ahead without the dominant group and the failure even to maintain a vital link through which future co-operation should be effected carry over into subsequent years? If so, what were the effects? These questions cannot be answered with finality; sorne answer will be forthcoming in the later discussion of a specifie aspect of Council activity. However, we are impressed at this point with the number of problems introduced in the early meetings which still persist today at very much the same stage of solution. Furthermore, we are in a position to observe that this essential separation exists in regard to the two groups at the present time. Approach to the English Community In strong contrast to the preceding is the understand­ ing and care with which agencies other than French were - 73 - approached in the organization process. In the first place, it was desired to have all agencies in the Council, whether they be sectarian or non­ sectarian. Also, although there was sharp criticism of agency boards and agency practices in the survey, the attitudes existing in agencies were carefully weighed in taking action. The initial plan was to develop co-operation and trust before approaching delicate matters of finance, thus providing the reassurance essential to agency participation. Ample time was allowed for full consideration of the report by all before it was implemented. "Waiting", "negotiation" and "patience" appear to have been the watchwords in this process. Such an approach appears to have borne fruit in the strong support given the Council at its very beginning, and in its remarkable accomplishments in its initial period of operation--as reported at the first annual meeting. From our experience and observation, we feel justified in saying that the approach just described has continued to be carried out and that it characterizes the work of the Council today. Rationale for Welfare Activity Falk's section of the report introduced new and challenging elements into the rationale for welfare activity. Welfare was presented as based on a compelling economie con­ sideration; an industrial society required its members to be productive, the rehabilitation of individuals was therefore - 74 - an economie necessity. Justice and mercy, in addition to being ideals, were at least harmonious with good social management. An important role of the social worker, furthermore, was that of facilitator of economie productivity, through bringing capital and labour together, and through restoring persons to productive roles is society. An emphasis on the professional worker was implicitly, if not specifically, stated in Falk's analysis. New attitudes ' on the part of agency boards were required, in w~h the pro- fessional worker would be given a more significant and dignified role and much greater status. Finally, Falk stated the concept of the volunteer as a participating worker, who knows social problems because of first hand contact with them. To what extent were these ideas woven into the active philosophy of the Council? Once again the scope of the study prohibits tracing out the concepts into its subsequent de­ velopment. However, it is clear that in the initial period under study the major etmphases was on the rehabilitative function of social work, carried on primarily from charitable motivations. Little consideration or implementation was given to Falk's economie rationale for social welfare, and to the social worker's role as bridge between capital and labor. It is our impression that this continues to be sub­ stantially the situation at the present time.

In ad di ti on, i t i-s a well known fa ct that much - 75 - emphasis has been given to the place of the professional in welfare programmes. But the equal tendency has been for the volunteer role to become a specialized one. Professional social work continues to be loath to permit the volunteer to have the kind of experience envisioned by Falk. The re­ spective roles of volunteer and professional are currently lees than clearly defined and there is, in fact, not in­ frequently the existence of tension between the two. Programme and Organization The approach to the community was broad and com­ prehensive. All services were desired to be included, and interest was in both health and welfare. Chronic and acute problems were pinpointed and analyzed. Avoidance of dup­ lication of services was called for, as was provision of new specialized services; and there was a strong emphasis on preventive measures through the development of recreation, the use of public facilities, etc. Here again it is our clear impression that this represents the essential platform of the Montreal Council of Social Agencies in its current operation. The plan of organization was comprehensive; board and standing committees were logically thought out. But the division structure was somewhat cumbersome. The functions and responsibilities of the divisions overlapped. When the Council was reorganized in 1941 this structure was simplified. Three sections were set up: Case Work, Health, and Recreation. - 76 -

CHAPTER III

FINANCIAL FEDERATION

Probably the most characteristic development of social work in this country is the plan of joint financing of social agencies, known as the 'Community Chest'.l

Introduction

In the preceding chapter it was noted that from the beginning ehe Council acquired a cohesive character that augured well for the future. As a result the next logical step was taken; i.e., the development of a formula for the joint collection of funds. Because the Council and Feder­ ation are so inextricably bound together it would appear necessary to describe the events which culminated in the creation of Federation. The material which follows is organized in four sections. The first deals very briefly with the history of the federation movement in the United States. The second section describes the events which led to the establishment of federation in Montreal not long after the formation of the Montreal Council of Social Agencies. The third section will outline the organization of the first federation cam­ paign held in this city in the late fall of 1922. The fourth

1 Bruno, op.cit., p.l99. - 77 -

and final section contains the summary and analysis.

History of Federation Movement

The movement stems from Liverpool where in 1860 a clergyman organized a branch of the Central Relief Society to accept subscriptions from donors who gave large amounts to various charities. By the new plan the total amount given could be paid semi-annually or quarterly and was distributed according to the wishes of the givers. It was really a con­ venience to the individual benefactor. The idea of federation per se never became popular in England. It was not till the idea was transplanted to the United States that it grew into the flour.ishing movement now familiarly known as the Community Chest, or Welfare Federation, as it is called in Montreal. The symbol of the movement 1 today is the red feather. The movement to unite for the collection of funds for charitable institutions had its very beginning, in the United States, in Denver, Colorado, in 1887, when a number of agen­ cies joined together with the primary purpose of soliciting funds. The association called itself the Charity Organiza­ tion Society, adopting the title in quite a different context than that in which it was used elsewhere. The Denver project was limited because it did not under~ake to raise the total amount of money needed by its

1Adopted in 1945 as an international symbol by the Community Chests and Councils of America, Inc. Used ex­ clusively by Welfare Federation in Montreal by agreement with the other Federations. - 78 - member agencies, and by 1905 the amount being raised indep­ endently by the agencies was greater than the fund itself was collecting. In 1900, the city of Cleveland, Ohio, organized a 1 Committee on Benevolent Institutions to endorse agency appeals, one of the functions for which the Charity Organ­ izations had originally been formed. As time passed the citizens of Cleveland came to rely more and more on the Committee's reports for their knowledge of welfare needs. The Committee assumed a supervisory role in that it evaluated the agencies' work, co-ordinated existing programmes, avoided duplication of service and investigated such phases of agency operation as accounting procedures. The success in Cleveland led logically to the proposa! of the agencies that a plan for a united appeal be made, and in March, 1913, the Cleveland Federation for Charity and Philanthropy was launched. From then the idea has spread. It has been said that the growth of councils was slow and that it is doubtful if the council movement would have developed as it did had it 2 not been for the advent of federation. The federation and the council were vitally dependent on each other. The councils needed independant bodies to remove the load of financial responsibility in order that they might perform their proper function. On the other hand, the federation

1Bruno, op.cit., p.200. 2Bruno, op. cit., p.l95. - 79 - budget committees looked to the councils for expert advice in regard to the individual agency's financial requirements, based upon an evaluation of the agency's role in the community. An important impetus was given to the federation move­ ment by the advent of the First World War. Many national campaigns organized local war chests to interpret the needs of the national organization to the local communities. By 1916 there were over three hundred of these, while only some twenty cities had federations. By the end of the war the urban centers had become used to the idea of a centralized campaign. They had learned to organize in large numbers in great unified efforts for an annual appeal. After the war many of these chests remained in exist­ ence and diverted their activities to the collection of funds for strictly welfare services.

The Organization of Financia! Federation in Montreal

"Council and Federation are mother and daughter."l

It will be remembered that the recommandations of the Falk report stated that the survey cornmittee had decided to defer consideration of financial federation until a later date, ••• when the majority of the agencies have proved their sincerity by showing

1 The President at the Council's annual meeting, January 26, 1923, Welfare Work in Montreal in 1922, (Montreal Council of Social Agencies, 1922), p.J. - 80 -

their ability to co-operate in social reform and education.l This was only half the reason. Many agencies hesitated to join the Council, as we have shown, 2 in fear of losing financial autonomy, as a result, perhaps of losing control of agency policy. Consequently, in the application form for membership in the Council the executive committee inserted a clause to the effect that the agency reserved the right to withdraw from membership if in the future any method was devised for the raising of funds which did not meet with the approval of the agency's board of directors. This assuaged the misgivings of a number of prospective members.3 From the beginning the Council developed a corporate attitude of good will, which had been the hope of its founders. It was not a far step from the mutual trust which was en­ gendered around the Council table to the serious consideration of a joint appeal for funds. Sorne of the important industrial­ ists of the community who were also the most generous givers to charity, were at the same time pressing for concerted action. In June, 1921, the Dependency and Delinquency Division of the Council submitted a resolution to the executive com- mitee which was endorsed by the Child Welfare Division, re­ questing informal consideration of a joint financial appeal.4

1 Falk Survey, op.cit., p.37.. 2supra., p.52. 3Council Minutes 1919-1921, p.30. 4Ibid., p.llO. - 81 -

From then on events proceeded rapidly. Huntly R. Drummond, a leading Montreal banker, at the request of the Council's president, called a small group of business leaders together with representation from the Council. They carefully studied the section of the Falk survey which dealt with the Financial Aspects. 1 The survey committee had studied eighty agencies. The incomes of sixty-five of these were analyzed and it was shown that they received $501,000 from private sources in direct contributions and $322,000 from public funds. The distribution of the latter amount is shown in Table 2 below.

TABLE 2 DISTRIBUTION OF PUBLIC FUNDS TO PRIVATE AGENCIES IN MONTREAL 1918-1919a

Agency Amount

Total • • . • . • . $322.000b Alexandra Hospital. • • • • • • 51,000 The Boys' Farm and Training School • • • 27,000â Montreal General and Royal Victoria Hospital • 46,000 Verdun Protestant Hospital • • • • • • 146,000~ Other Sixty agencies • • • • 52;000

asource: Report of a Committee of the Montreal Council of Social Agencies, November, 1919, p.l2. bMunicipal Grant. cProvincial Government Grant. dAmusement Tax. 9 Provincial Government Grant. fTotal Grants, all sources.

1 Falk Survey, op. cit. pp.ll-16. - $2 -

Subscription lists of thirty-four agencies were made available to Falk. These agencies collected $292,8$6 from 16,30$ donors. Falk found that the average number of agencies supported by individuals was 2.21; the average supported by firms and associations was 2.79. Further investigations revealed that of subscriptions amounting to. one hundred dollars or over, 7.3 per cent of the individual subscribers contributed 60 per cent of the total collected, and 12.4 per cent of the firms and associat­ ions gave 76 per cent of the amount received from that source. This information also confirmed experience elsewhere that only a comparatively small number of persons subscribed to the local charitable agencies and many of these gave only a fraction of what they could afford. It seemed obvious that the burden of financial responsibility for the welfare needs of the community was inequitably distributed. Mr. Drummond's cornmittee prepared a letter which was sent to a large number of Montreal's most generous benefactors, asking if they would support financial federation. The letter summarized the findings of the Falk survey and the phrase "multiplicity of appeals", so familiar today, was used. Reference was made to the wastage of time of contributors and canvassers and of the high cost of agency campaigns. There were a hundred and ninety-two favourable replies to this letter. Only four were unfavourable. In November, 1921, a public meeting was held at the Windsor Hotel, which was addressed by Mr. M. C. Mc.Lean, - 83 -

Executive Director of Toronto's Federation, which had proved most successful. Previous to the public meeting, Mrs. R. W. Reford invited the presidents of the agencies, or their represent­ atives, to meet Mr. McLean at lunch at the Ritz-Carlton Hotel in order that there might be informa! discussion and a number of points clarified before the public meeting. At the evening meeting Mr. McLean presented the case for federation, with the result that a resolution was passed to proceed at once with plans to set up a combined appeal in Montreal. On March 13, 1922, a meeting was held of representatives of those agencies which bad passed the resolution in regard to Federated Finance. At this meeting twenty-three agencies were represented. They approved a draft scheme of organ­ ization and set up a nominating committee to fill the twenty­ one seats on the Board to be elected from the general member­ ship.1 2 It will be noted from the chart of organization that provision was made for the joint purchase of supplies. Under this heading there was proposed also a centralized accounting service and the annual publication of a booklet containing the agencies' annual reports. Decision on these poi!lts was deferred until after the first campaign. In May a general meeting of Financial Federation took place at which the Directors for general membership and for 1 See organization chart, p.84. 2Ibid. FIG.I - ORGANIZATIONCHART

~ontrealCouncil of Social Agencies 1922a

--

Con fj dent ial Central Office Joint Purchase Divisions t<;xchange Building of Supplies 1 Child Health Dependency - Delinquency Education - Recreation Federated Finance Sick - Handicapped ::J. ' 12,000 J:- -:;ontri hu tors 21 Contributors 15 Institutional Members ~

f 1 T Collect:to ns Bookkeeping Publicity Budget Pledges and Audit Distribution CAMPAIGNICOMr.HTTEE

l Supplies Districts Special Names Publicity a Source: Financial Federation Minutes, 1922, p.40. - 85 - institutional membership were appointed, twelve to serve for 1 one year, twelve for two years and twelve for three years. Financial Federation thus became an accomplished fact and there began at once the task of planning for the first campaign. To this end the Budget Committee was established, composed of eight members of the Board of Directors and eight representatives of the agencies. The Budget Committee was divided into four sub-groups, each to deal with a certain number of agencies. This meant that each institution was aarefully studied by at least four members of the Budget Committee, who were then in a position to present intelligently the institution's budget for the decision of the committee as a whole. The policy of the Budget Committee was that the "autonomy, independance of action of the agencies should be preserved with the most sedulous care.n2 It was laid down and accepted by the agencies that the budgets for 1923 should not exceed the expenditures for 1922. On this basis the budgets for the first campaign were accepted by and large without change. The total budgets of twenty-seven agencies amounted to $323,505. Cost of Federation were estimated at $17,500. The campaign objective was set at $350,000, leaving a balance of $8,995 for a contingency fund.

1 see Appendix C,p~l5L for List of Original Directors. 2Financial Federation Minutes, 1922, p.22. - 86 -

The Campaign

A meeting of a Provisional Campaign committee took place on May 16, 1922. Temporary officers were appointed, also skeleton committees for special names and employees. Discussion took place on the method of collecting lists of subscribers to include the lists of the twenty-seven agencies who were members of Federation. It was hoped to secure

other lists of subscribers who had donated to Red C~oss, McGill University and Victory Loan campaigns. It was further decided at this meeting to collect by districts. At the next meeting in June the permanent committee for the campaign was set up with Senator Lorne C. Webster as Chairman. Senator Webster was not present at this meeting. He later declined the chairmanship but agreed to act as co­ chairman with Mr. George Lyman. The Honorary Presidents were Sir Vincent Meredith, E. W. Beatty; Honorary Vice-Presidents: Lady Drummond, Mrs. D. Anderson, Mrs. W. Lyman, J. W. Ross, W. M. Birks, The Right Reverend Bishop Farthing, Sir Arthur Currie, H. c. Kelly. These ladies and gentlemen and the members of the general committee, along with those invited to serve on the Special Names Committee, represented Montreal's élite. Although this was characteristic of similar enterprises, as pointed out by Murray G. Ross, 1 nevertheless the founders of the Council were all citizens who represented a vested interest in welfare. But these same people, when they chose the campaign leaders,

and - 87 - selected rrom a far wider field and were able to involve them because of practical and economie consideration rather 1 than solely on a basis of improving welfare services. Most of these people had worked together before. Dur­ ing the Great War they had jointly served on countless campaign' committees: Patriotic Fund, Soldiers' Wives League, Red Cross, Victory Loan, to mention only a few. They had learned to work together and they were, because of the war experience, far more concerned with community affairs than they had ever been before. Motivation was there, and ex­ perience. Hehce, it was not surprising that the campaign structure was from the beginning effective and practical. After the formation in June of the Campaign Committee for 1922, meetings took place regularly and the organization gradually took shape. It was decided to hold the campaign in November and the week of the sixth was chosen. This was later changed to the week of November the twentieth. Additional committees were formed for publicity, finance and office and supplies; two typists were engaged. Mr. D.A.Budge, who had been active in campaigns during the war, agreed to supervise the compilation of subscription lists, and by July cards had been prepared for four thousand name s . 2

1 Aileen Ross, Philanthropy in an Urban Community, Reprint from the Canadian Journal of E=onomics and Political Sciences, Nov. 1952, p.à3. 2 Federation Minutes 1922, p.l38. -·- The importance of agency participation was stressed and meetings were arranged with agency representatives. They were asked to form teams, and readily agreed. The active participation of the agencies is still an important and essen­ tial feature of Red Feather campaigns. During the summer Falk attended welfare meetings in the United States. He was asked to bring back information regarding campaign organization and procedures there. At a meeting in July he reported to the Committee. He stated that on the basis of American experience at least one thousand canvassers would be needed for the Montreal campaign and that these volunteers should be very carefully briefed. We must "sell the idea" of federation, he insisted, pointing out that the situation in Montreal was entirely different to the cities in the States he had visited. There one campaign served for the majority of the welfare services of a municipality, where­ as in Montreal the campaign was to raise funds for the charitable institutions of a minority group. Falk spoke of the fine work being done in the American campaigns by the women's groups. As a result, the Women's Division was formed in Montreal, ably directed by Mrs. Arthur Drummond. Falk also insisted that weekly luncheons were essential and these later became a feature of the campaign. By the end of August twelve districts had been mapped out. In September a speakers' committee was formed. During the summer and early fall teams were being built up and divisions organized but many of the key positions, such as - 89- division chairmen, were still unfilled. The weather was particularly fine that summer and many people remained in the country. It was not until a few weeks before the campaign opened that all the division heads were found. After the campaign was over the chairman said that in future division 1 chairmen must be appointed before the vacation period began. All this while the publicity committee had been busy. Donations of poster space were secured, show cards and posters designed, photographs of agency activities taken, and an illustrated pamphlet prepared. Of these 20,000 were printed, g,ooo of which were reserved for distribution to employees in business and industry. A circular letter was prepared to be sent to prospective canvassers and to the city clergymen.

Appea~s were made to Rotary and Kiwanis, the Masons and the Y.W.C.A., for help in collecting, but the response, on the whole, was apathetic. However, as the opening date of the campaign drew near many members of these organizations vol­ unteered to assist as individuals. The Boy Scouts offered their services for the week of the campaign. On November the first one hundred citizens were in- vited to a luncheon which was addressed by Mr. Roland B. Woodward of Rochester, and on the eve of the campaign-­ November 17th--an enthusiastic rally was addres sed by Mr. E. W. Beatty. The stage was set. Campaign headquarters was established in ground floor premises donated by the president of the Council in a build­ ing on Notre Dame Street. Mr. Huntly Drummond gave space~ 1 Ibid., pp.l6-20. in his building on St.Catherine Street as a headquarters for the Women's Division. In both these places day and night during the campaign volunteers checked and acknowledged gifts. Employees of the Bank of Montreal, the Bank of Commerce, and the Royal Bank of Canada gave their services in the evening. The end justified the labour which had been expended. Four hundred and six thousand dollars were collected in cash and in pledges from 41,660 subscribers. The total cost of the campaign, including administrative expenses for nearly twelve months of organization, was only 3.68 per cent. The first annual meeting of Financial Federation took place on February 19th, 1923. Mr. George Lyman, reporting as Chairman of the Campaign Committee, stated that two main factors were responsible for the success of the campaign. First, the overwhelming response from employees, and second, the results of the women's collections. Their objective had been $61,400 including $25,000 from the Special Names Comrnittee. The ladies collected $82,000 and secured thousands of new subscribers. Subsequent Experience--The diagram on page 91 shows, by ten­ year intervals, the increase in objectives and receipts since the first campaign in 1922. Since then the objectives have increased from $350,000 to $1,685,000 in 1956. Objectives have not been reached in recent years. It is necessary to point out that in 1922 twenty­ seven agencies participated and in 1956 thirty-one agencies only were involved.1 How then to account for the tremendous

lsee Appendix D, p.l52,List of Present Member Agencies. - 91 -

F'IC. 2

Oq,r ECTIVES AND W1:CEIPTS WELF'ARE FED~RATION CAMPAICN MONTREAL 1922-1956

Dollars 1,700,000~------~

ge nd Collected 1,500,000~--~~0bjective

1,300,000~------

1 '100 '000 -1------

900,000 ~------

700 '000 .J------

500 '000 ~------

300,000 ...___ _ Years 1922 1932 1942 1952 1956 a Source: Welfare Federation Annua1 Reports. - 92 - increase in the funds required? The answer, of course, is two-fold. There have been sorne important consolidations and the cost of operations has pyramided. Nevertheless, the inference is that the majority of agencies still are loath to give up their financial autonomy. Some provincial branches of national organizations use the argument that they benefit greatly from national campaign publicity. Still many other organizations who are not members of Federation are members of the Council, realizing the importance to themselves of sharing in community welfare planning. The situation poses a difficult enigma in a city like Montreal, already split into ethnie divisions for welfare activities. The plethora of annual appeals outside of the four federations is wasteful and illogical. The time is rapidly approaching when controls will have to be imposed and enforced.

Summary-Analysis

The Federation at the outset established a pattern for fund-raising which has altered little over the years. This was, in essence, the application of business techniques to charitable enterprise. Financial Federation was the necessary and effective complement to the Council. It was also the logical extension of the basic decision of the English .section of the community to go its own way, to which reference has been made in the preceding chapter. - 93 -

Federation was a development within the English­ speaking section of the community. Although on reporting on his study of American charitable financing, Falk again noted the peculiar ethos of Montreal, his only conclusion was to stress the added difficulty in selling the idea of federation. (Had he seen the English in the role of a minority group, and had he understood minorities, he might have reached the opposite conclusion--that financial fed­ eration might have been easier to achieve here than else­ where.) It is interesting in this connection to note that the agencies involved were even then at the beginning of Federation dependent on government sources for the preponder­ ance of their budgets. (Over three-fifths.) The same skill in approach which was evinced in the English community in regard to setting up the Council is also evident in the effort to bring about co-operative effort in financing. The organizing group laid the foundation in their statesman-like handling of the fear felt by the agencies that they would lose their autonomy. Thus the great care exercised in assuring careful consideration of budgets and the successful effort made to involve agencies in the campaign. The organization for co-operative financing appears to have introduced a virile new influence in the total move­ ment; where the Council might be said to have resulted mainly from a concern for reform, the major motivating force - 94 - in financial federation seems to have been that of economy. There was pressure from industrialists to avoid multiple appeals, this resulting in part from their experience during the war period. Further, when workers for the campaign were chosen, it was not because of their interest in im­ proving service but because of their ability to secure con­ tributions. This influence, representing a step f~her away from Falk's rationale for welfare, was further heightened by the reliance on an elite/ for leadership and on business people for the main effort in the campaign. Then, as now, although it was deemed desirable to distribute the burden of support, it was recognized that the main support came from industry and the well-to-do. It may well be, therefore, that it will be the in­

/ fluence of the business elite that will force a solution of the present chaotic situation in respect to fund-raising in Montreal. - 95 -

CHAPTER IV

THE PROBLEM OF MENTAL RETARDATION

In the little world in which children have their existence, whosoever brings them up, there is nothing so finely felt, as injustice.l In the preceding chapters we have examined the origins and formation of the Council and its counterpart, Welfare Federation. This has been to the point of answering the question "How and why did the Council come into being?" We have also been able to make sorne connections between its origins and its subsequent development. It is now our purpose to turn our attention to one specifie problem to which the Council addressed itself in order further to explain these connections.

Introduction

The information for this chapter is derived from the Council minutes and from the reports and minutes of the various committees which have over the years dealt with the problem. The period covered is from the inception of the Council to the end of 1956. The material will be divided in five sections. The

1Charles Dickens, as quoted in Bartlett Familiar ~uotations (Boston: Little Brown and Co., 1938J, p.498. he source of this quotation could not be verified. - 96 - first spans the years 1919-1941 and discusses the scope of the problem in the twenties and thirties, the work of the early committees and the first submissions to the Provincial Government. The second section deals with the appointment of a committee under the chairmanship of Dr. Baruch Silverman and discusses the report and recommandations of that committee. Section three covers the years 1952-1956 and describes the setting up of a citizens' group and their plans for a new in­ stitution. The fourth section deals with the changing phil­ osophy with regard to the problem and the difference in attitudes of the English and French. The fifth section con- tains the summary and analysis.

Period 1919-1941

In 1920 the Director of the Mental Hygiene Committee1 surveyed the Protestant children's institutions in Montreal 2 and found that there were over 200 children who could be graded as mentally retarded and who could not be integrated into a normal school programme. At a meeting of the Council held that same year on Friday, October 20th, the speaker was Dr. A. H. Desloges, Director of Public Charities for the Province of Quebec. During his address he announced that the Provincial Government was favourably disposed to the 1 This Committee had been organized in 1919 as the local branch of the Canadian Association for Mental Health. The Committee subsequently changed its name to the Mental Hygiene Institute, as it is known today. 2council Minutes 1919-21, p. 61. Of these, 9 were imbeciles and 29 high-grade feeble-minded. - 97 - establishment of an hospital for epileptics and feeble­ minded as soon as financial conditions would permit. This institution would serve both children and adults. At the suggestion of Dr. Desloges the meeting passed a resolution stating that the Council approved in principle "provincial and municipal taxation of amusements for the support of philanthropie and social work."l The resolution proceeded to urge the Government immediately to establish the institution for epileptics and the mentally defective. It is perhaps of interest that at the time the Provincial authorities and the members of the Council felt it would be practical to establish an institution for both epileptic and mentally retarded cases to serve adults as well as children. Epileptics of all ages had been placed in institutions with mental cases for generations, and the concept of segregating children from adults and one category of handicapped child from another was still comparatively new. The idea of segregation was an evolving philosophy dating back but a few years to the beginning of the twentieth century. In 1922 the Ste.Anne Hospital at Baie St.Paul added a 300 bed addition.2 This institution had signed a contract with the Provincial Government and was being paid $175 per capita per annum at the time. The Mental Hygiene Committee took advantage of this development to suggest to the Council

1 Ibid.,. p.26. 2 An institution for grossly retarded children and adults. - 98 - that the Protestant institutions in Montreal should reorgan­ ize so that one of them could be used for mentally retarded children. In due course a petition was forwarded to Quebec 1 asking for financial assistance. There is a report that same year of an interview with the Provincial Secretary who stated that because of the Government's arrangements with the hospital at Baie St.Paul he thought the authorities would listen favourably to an application from the Protestant community for a contract on the same terms. The Children's Division of the Council in 1923 believed the most urgent problem affecting all agencies in the 2 Division was the disposition of the feeble-minded child. Its rnernbers thought that it affected all phases of child welfare, and they started to plan for a survey to be made to see how the city of Montreal could marshall its resources to meet the needs that existed and to plan for the future. It was stated that much could be done for these children if they were given proper training and placed in suitable surroundings. The sub-normal child may often become self-supporting. If left to compete with persons of normal development, unassisted by the special help they require, they will become liabilities, fil1ing the poor bouses and jails and costing the country large sums of money.J

1council Minutes 1922-23, p.?8. 2 Ibid., p.?. 3council Minutes 1923-24, p.?. - 99 -

However, great as the concern of the Division was, they felt the funds required to establish an institution for the retarded should be supplied by the Provincial Government and not through private benefaction. In 1924 Mr. C. C. Carstens, of the Child Welfare League of America, completed a survey of the children's in­ stitutions in Montreal for the Council. Among his recommend­ ations was that of using one of the existing institutions in the city for the mentally deficient. One recalls that this idea had already been brought forward two years previously by the Mental Hygiene Committee. The year 1925 brought great hope. The Council again pressed the Provincial Government. An interview was arranged with Premier Taschereau and the Provincial Secretary, the Honourable Athanase David, who was friendly to the Council. A third person representing the Government was Dr. Alphonse Lessard, then head of the Public Welfare Department. As a result of this meeting there was a definite promise that a grant of $150,000 would be considered. It seems incredible that later in the year this promise was rescinded. It was a bitter disappointment to those who had worked so hard and for so long on this project. In 1926 the late Mr. J.S.Brierley, President of the Council, consulted Mr. J.W.McConnell and other directors of Montreal hospitals, asking them to join with the Council in a joint appeal to Quebec for the establishment of a training school for the feeble-minded. The hospitals, however, - lOO - were having their own troubles attempting to secure in­ cre~sed financial support, and, as a group, they requested the Council to desist from approaching the Government again until the hospital financial question was settled. The Council had no choice but to agree graciously to this request. The Council's Research Committee spent sorne time that year studying the distribution of the Provincial Public Charity Fund as well as analyzing public financial support of Montreal agencies and it became apparent that the Provin­ cial Government was not doing its share. Not only was the Government not giving a fair share on the basis of English French population ratio, but many Protestant agencies and nearly all Protestant hospitals were caring for numbers of Roman Catholics. This led to another petition to the Premier signed this time by the presidents of the Council and the Federation of Jewish Philanthropies. The petition was followed up by a delegation to Quebec composed of the pres­ idents of the majority of the agencies in Welfare Federation. It was supported by the Honourable Herbert Marler, and the Honourable Andrew McMaster, Provincial Treasurer, but nothing came of it. In 1929 Mr. Brierley, representing the Council, and Mr. Bronfman, of the Federation of Jewish Philanthropies, interviewed the Provincial Secretary, the Honourable Mr. David. At this meeting Mr. David said that if a permanent committee of management was organized which would present definite plans for a training school--plans which would meet with - 101 - his approval--he would recommend government assistance. Subsequently, the late Dr. W. T. B. Mitchell, Director of the Mental Hygiene Institute, was appointed chairman of such a committee. The committee's report to the Council contains sorne suggestions which are worth recording. No attempt was to be made, at least at the beginning, to care for the low grade idiot. It was recommended that a training school be estab­ lished to receive children five to eighteen years of age with I.Q.'s ranging from 45 to 70. The school should be close to Montreal. There would be a minimum bed accommodation for 75 children, capable of expansion to 150, with consider­ ation to be given later to the creation of a farm colony for those who would return to the community. In 1929 the Advisory Board of Financial Federation and the Council, under the presidency of Mr. Norman Dawes, addressed another strong appeal to the Premier. Next year the Council was preoccupied with unemploy­ ment and with homeless men, but they gave sorne thought to taking over the Hervey Institute and adapting it as a school for the retarded. When the matter was broached to the Provincial authorities, it was intimated that training schools for mentally deficient children must thereafter be developed · by the school boards and that there would be no possibility of financial help from any government department in Quebec. The reader must keep this new attitude in mind when events which occurred in 1956 are discussed. - 102 -

Later in 1930 the Council's Committee on Juvenile Delinquency brought to the attention of the Health Division the fact that the Juvenile Court was committing mentally defective children to industrial and reform schools. It still does. Nothing else was possible when there were not then, and are not now, the institutions which are needèd to care for this category of children• In 1931 reference was made to this question in the annual report of the Council. Thereafter for five years, if the matter was discussed by the Divisions, there is no record in the minutes. One notes that the problem is not included in a list of eleven major items for consideration of the Council in the year 1937. In 1939 the Children's Service Association wrote to the Honourable J. H. A. Paquette, Minister of Health. He replied to the effect that his budget did not allow for provision for the care of the retarded that year but that he would comply when his budget permitted. The same response was elicited the neoct year when a letter was sent to the Minister by the Society for the Protection of Women and Children. Mental retardation was still considered as a health prob1em.

Period 1941-1951

In 1941 the Council appointed a new committee under the chairmanship of Dr. Baruch Si1verman, and the following year this committee submitted its report. Here one should - 103 -

1 pause to consider the contents of the 1942 report which provided the working basis upon which all subsequent action developed. The report provided a definition of categories of mental retardation based upon studies in Great Britain carried out by Dr. A. F. Tregold. 2 I.Q.'s

Idiots • • • • 0 to 30 Imbeciles • • 30 to 50 Morons • • • 50 to 70

Research has shown that 1% to 2% of the general pop- · ulation were mentally defective (I.Q.'s not over 70) and that the distribution of these was as follows: Idiots • • 5% Imbeciles • • 20% Morons • • 75% The American Association on Mental Deficiency in 1940 had estimated that 10% of the total number of mental defect­ ives should be institutionalized and that this percentage would include the educable types. The preamble to the report states that in almost every State of the Union and in every Province of Canada there had been acceptance by State and Provincial Goverhments of re­ sponsibility for the care of the mentally handicapped, except in Quebec. Acceptance was, of course, one thing; how effect­ ive the implementation of acceptance was quite another. The report then considered the situation in the

1Montreal Council of Social Agencies. Report of Committee re. Care of Mental Defectives (Montreal, April, 1942), often referred to as the Silverman Report. 2Tregold, A.F., A Textbook of Mental Deficiency, (London: Bailliere, Tindall & Cox, 1937), 6th ed., p.l4. - 104 -

Province of Quebec and, using the 1941 census figures, estimated that there were approximately BOO non-Roman Catholic mental defectives in the Province who needed in­ stitutional care. There followed an outline of what was currently being done for the 50 to 75 I.Q. group within the Protestant Schools. Mr. J. W. Perks, of the Protestant Central School Board of Greater Montreal, stated that 2% of the school pop­

ulation fell into this group. He estimated that there ~ere approximately 840 children who required special-class train­ ing. With 20 pupils in a class, 42 classes would be required; two-thirds for the group from five to twelve years of age, the remaining third for the thirteen to sixteen year olds. Back in 1929 two special classes had been set up by the School Board. At the time (1941-1942) these figures were being prepared there were thirteen special classes in Protestant schools on the Island of Montreal. Mr. Perks estimated there were 580 Protestants and 180 English Catholics requiring special classes, for whom no such pro­ vision existed. There were no special classes in schools outside Montneal. The Silverman report ended with a number of recommend­ ations, the most important of which was, as one might expect, that the Provincial Government should assume the entire cost of erecting an institution and providing for its total main- tenance. If such an institution was to serve the English­ speaking, non-Catholic population of the Province it should - 105 - have a capacity of 400 pupils. If it was to serve the Montreal area only it should provide for 250. In 1943 the Council then turned to the Mental Hygiene Institute for assistance in implementing the Silverman Report, to plan a private institution to have a bed capacity for 200 with provision for expansion. The suggestion was that the Provincial Government be asked to help with the costs of construction and maintenance. It was proposed that the institution be operated as were other mental hospitals, such as the Verdun Protestant Hospital, which is privately owned and subsidized, though meagerly, by the Provincial Government. No definite action took place in 1944, but the next year arrangements were made for a delegation to be received by Premier Duplessis in March. This plan fell through, due to the illness of the Premier. In 1946 Dr. Gregoire, Deputy Minister of Health and Social Welfare, met representatives of the Council to discuss the age-old problem. He was sympathetic and advised that a strong delegation wait upon the Minister. Dr. Paquette received the delegation. He asked that detailed plans of the building be prepared, with costs. He wished these to be submitted to him in September. During the years since the submission of the 1942 report the Mental Hygiene Institute and the Health Section of the Council were assembling additional information and were corresponding with specialists in the mental health - 106 - field, especially in the area of mental retardation. Dr. Silverman had secured the voluntary services of Mr. Norton Fellowes, a well-known Montreal architect, who made prelimin­ ary plans for an institution based on the information which had been collected from many parts of the world. The interest which Mr. Fellowes developed in the project was to be of great help later on. In 1948 the Mental Hygiene Institute was asked by the Council to accept financial responsibility for the building of the greatly needed institution. In view of the long history of disappointment and because of the magnitude of the task that lay ahead, the board of the Mental Hygiene Institute decided that it could not assume the responsibility. The board stated, however, that its members would continue to exploit every possible resource to develop the project, which indeed they had been doing from the beginning. This was one of the reasons which inspired Dr.Silverman to organize a Mental Health Committee in the Rotary Club of Montreal. His thought was that an influential body, such as a large service club, undoubtedly could be a potent force in the development of the new institution. The Rotary Club had sponsored many successful projects of a social welfare nature in the community. On January 20, 1948, the first meeting of the new 1 committee took place with Dr. Silverman as the first chair- man. The initial item on the agenda was the pressing need

1The writer was a member of this committee and from this point has been intimately connected with all subsequent committees. - 107 - for an institution for retarded children, and ever since then the committee has worked hard and consistently for its establishment. One of the committee's first actions was the preparation of a resolution which was approved by the board of directors of the Club and forwarded to Premier Duplessis. Through the influence of the Club the resolution was endorsed by other Service clubs and public bodies in the city of Montreal. More will be said later of this committee's activities in relation to the problem of juvenile mental retardation. In 1950 another delegation, headed by Dr. J.C.Meakins, President of the Mental Hygiene Institute, was received by the Premier. Other members were Dr. Ewen Cameron, Dr. Jean Saucier and Dr. Silverman. The petition which they presented was strongly supported by the Honourable G. B. Foster, a member of the Provincial Cabinet. The ·Premier's comments were favourable, and he promised that the matter would be placed on the list of government projects for future consider­ ation. Exactly twenty-five years had passed since Premier Taschereau had promised consideration of a grant of $150,000 for the same purpose. The following year efforts were continued to influence the Provincial Government, but though there appeared to be sorne interest in the problem no action was forthcoming. Thus the first phase is completed. Thirty-two years had elapsed since the problem had first been discussed by the Council. Only the highlights of what had been done have - lOS - been mentioned here. One can imagine how many devoted people had been involved in these events, the countless committee meetings, the volumes of correspondance, the dedication of those who fought for a neglected and tragic group of children for whom much could be done, given the facilities which were so urgently required.

Period 1952-1956

As the years went by more and more became known re- garding the training and treatment of the mentally deficient. A sense of urgency was engendered in the corporate thinking of the Council and particularly within the Board of the Mental Hygiene Institute. This was intensified by the grow­ ing potency of the mental health movement throughout the continent and the increasing awareness and umderstanding on the part of the public that mental deficiency is a social problem of the first magnitude. Thus one moves into the second phase with the year 1952. The second phase is distinguished from the first by a sense of greater urgency and a marked increase of Council activity. That year an ad hoc committee was formed by the Council and met on December 5th. The Chairman's opening remarks included the following statement. In recent months through the efforts of the Mental Hygiene Institute it has been indicated that the Government i~ prepared to act provided a representative b.ogy. of citizens would endorse the project--bence the present meeting.L .

1Minutes of the Committee. - 109 -

This Committee immediately began to consider the membership of a provisional board of directors1 which would be rep­ resentative not only of Montreal but of the Province as a whole. A significant decision was made at this meeting; namely, that in petitioning the Provincial Government the name of the institution ehould contain the word "hospital" as well as the words "training center". This was done in order that the institution might benefit from Federal Health Grants for construction and operation. 2 This decision proved to be a mistake because it tended to influence those interested to consider the problem of mental retardation as one primarily of health and not of education. During the next three years the Committee lost valuable time because of a wrong emphasis. It is the writer's intention to clarify this point later. During this important meeting it was decided to ask the Mental Health Committee of the Rotary Club of Montreal for a grant of $1,000 for secretarial and other incidental expenses. Because of the Club's interest in the problem, which has already been noted, the money was donated at once. The ad hoc committee found a chairman for the

1 This board was frequently referred to later as the "Citizens' Committee". 2The Mental Health Grants have been made available by the Federal Government to the Provincial Departments of Health for the purposes of capital expenditures to increase the number of Mental Hospital beds available for patients; to improve the treatment facilities for the mentally ill; to establish and maintain Community Mental Health Clinics and to support psychiatrie research. - llO -

Provisional Board in the person of Mr. John J. F. Bancroft, a past president of the Rotary Club. He had been an active member of the Club's Mental Health Committee since its in­ ception. He was on the Board of the School for Handicapped Children so that he already had considerable knowledge of the problem. Furthermore, he had been active in many welfare projects within the community, and he had headed a number of successful financial campaigns. In the meantime the Council had published a "Programme for non-Catholic Mentally Handicapped Children in the Prov­ ince of Quebec". This was the $.ilverman Report of 1942 brought up-to-date with additional data. In discussing the day school, this document stated: The programme should be regarded as remedial treatment and it is essential that the services of the psychiatrist, psychologist, social worker and teachers, should be integrated in an overall plan 'conditioned' to the child. It was implicit that teachers for such a school would re­ quire specialized training. The report pointed out that in addition to a day school it would be necessary to have residential facilities for those children who do not adjust in the special classes or in the proposed day school. There were cases, the report said, where it was advisable for the child to be removed from the family; and as the institution was to serve the English-speaking population of the whole province, there would be children coming from outside Montreal. - 111 -

The report (or summary) referred to a new institution for French children, known as Mont Providence, operating under the inspired direction of Dr. Gerald Barbeau. This school, which had opened in 1950, had evolved from the Emilie Tavernier School, formerly situated within the St.Jean de Dieu Hospital. Mont Providence had cost in the neighbourhood of $9,000,000. It seemed logical to the English constituency that with facilities at last established for French mentally retarded children, the minority group should receive similar consideration. The summary outlined the principles which should guide the programme of such an institution. It described the type of buildihgs and what they should contain in the way of accommodation. It listed the personnel which would be required and gave consideration to budgetary requirements. All this material had been collected from previous studies and from information which had been secured from many parts of the world. This curiously titled document1 was to prove most useful to the newly formed committee. The first meeting of the Provisional Board took place on April 30, 1952, and of twenty-six parsons who had con­ sented to serve, eighteen were present. There was much enthusiasm displayed at this meeting. It was felt that with

1 Programme for Non-Roman Catholic Mentally Handicapped Children in the Provi nce of Quebec 1952, Montreal Council of Social Agencies. - 112 -

Mont Providence in operation it was certainly reasonable to expect that an institution for non-French Roman Catholics would now be considered by the Provincial Government. It was well understood that what was required was an institution which would provide for both residential and day care. There was agreement that available figures would have to be revised in accordance with prevailing costs. Three sub-committees were appointed: (1) Objectives and Building, (2) Legal, and (3) Finance. Of these the first was the most active during the following months. The Legal Committee's task was to secure a Charter, which it did. The Finance Committee was not intended to function until the Sub-committee on Objectives and Building submitted its report. That year (1952) the Mental Health Committee of the Rotary Club co-sponsored with the Council an institute on emotionally disturbed, mentally retarded, and delinquent children. This was the first of subsequent annual events under the same joint auspices, all having to do with sorne aspect of mental health. It was a happy collaboration because the Council bas no funds for such programmes. Hence, the Committee subscribes the necessary money and the Council provides the staff. Both join forces in working out programmes. The Sub-committee on Objectives and Building began its work immediately. Little t i me was spent on the ob­ jectives as these had been clearly set forth in the Programme - 113 - for Mentally Handicapped Children. They were, therefore, adopted as guiding principles by the Committee. It was decided to plan for a residential school to accommodate 200 and a day school for the same number. The Committee soon felt the need for architectural advice and invited Mr. Fellowes to serve on the Committee. As the Committee studied the costs of the proposed institution, it viewed with alarm the amount of money re­ quired. It was estimated that t3,000,000 would be needed to provide both residential and day facilities and the Committee was convinced that there would be very little chance of securing such a sum from the Provincial Government. Therefore, it was decided to break down the plan into two parts, and it chose as the first priority the residential school. There were good reasons to support this decision: 1. Financing, as already mentioned. 2. Difficulty of staffing both programmes at the start. 3. Because it t akes an extended period to fill a new institution, day pupils could be accommodated till the resid­ ential school was filled. The cost of the building and the land was estimated at $1,451,000; and it would take $270,450 annually to operate the institution, or $3.96 per capita per diem, which did not appear to be excessive. The Sub-committee's report, along with illustrated plans prepared by Mr. Fellowes, were submitted to the Provisional Board and approved. It was decided to present - 114 - these, along with a short brief, to the Premier as soon as an appointment could be made. No sooner had the report been approved than strong disagreement was voiced by two members of the Provisional Board, neither of whom had been present when the report was presented. These gentlemen had been members of the Sub­ committee but had not been present at the latter meetings and were not ~-fait with the Committee's thinking. The first objection came from the late Mr. W.E.Dunton, who had been ill. He was chairman of the Protestant Central School Board of Greater Montreal which had a vital stake in the project. Mr. Dunton did not approve of the emphasis on the educable child. He also felt that the plan should pro­ ceed as originally conceived by the Committee, ie., botha residential school and a day school. The financial im­ plications did not disturb him. Mr. Dunton's opinion had to be considered with respect. Aside from his official position, he was a close friend of the Premier, and it was believed he would know how Mr.Duplessis would react to the proposition. Another objection came from Dr. Hyman Caplan, who said that if there were to be any priority it should be for the day school. Mr. Dunton, before leaving for a trip south, received privately the Chairman of the Provisional Board and the Chairman of the Sub-Committee on Planning. Elaborating on his views he suggested the possibility that funds to build - 115 - the day school might be provided by the School Board. He thought that the school should be operated by the same board of directors as the residential school. In effect, the day school would have the same relationship to the School Board as had the School for Crippled Children. It would, like the latter institution, receive ex-gratia grants for each Montreal pupil from the Board. Mr. Dunton further believed that the school should be situated on the western outskirts of the city so that it would be close to Macdonald Collage which would be obliged to organize special courses for the train­ ing of teachers for the new school. All this led to another delay. Late in 1954 a new committee was formed called the Joint Technical Sub-committee, with four representatives from the School Board and four from the Citizens' Committee. One of the Schoo1 Board's nominees was Mr. J. W. Perks, who had been on the Council Committee in 1941. The new committee, which was chaired by Mr.Fel1owes, met frequently during the first half of 1955. It studied the needs for training the educable menta11y retarded chi1d in greater detail than ever before. Estimates now showed that approximately 3,000 non­ Roman Catho1ic chi1dren in the Province of Quebec could benefit from sorne form of special education and could be trained to become useful and self-supporting citizens. This number represents two and one-ha1f to three per cent of the total English-speaking schoo1 population. Of these 3,000 children 1,000 were domiciled in the Montreal area. Even - 116- though there were now additional special classes in the Montreal schools there was a greater need than ever for the new school. Plans were again worked out by Mr. Fellowes and a report was completed. It was now estimated that the cost of land, buildings, equipment and transportation facilities for such a training school to accomrnodate 400 children would be approximately $2,108,350, annual cost of operation $555,450. It had been decided that the school should be centrally located so that the day pupils could be convenient­ ly transported by bus. Before the report of the Technical Committee was submitted to the School Board and the Citizens' Committee there were two important developments. The first of these was the receipt of a letter from a gentleman in Quebec City who was acting as liaison with the Provincial Government. It was in regard to the property of the Children's Memorial Hospital on Cedar Avenue. The letter indicated that the Government might consider the use of the hospital as an in­ stitution for the mentally retarded. It was known that the hospital was negotiating wi."t,h the Government relative to the disposa! of the property before the hospital moved to its new location. The letter was followed up by two meetings with small groups of the Citizens' Committee. ,The gentleman from Quebec explained that the Government might take over the hospital property in return for a grant to the hospital, providing an - 117- amount could be agreed upon. He advised that if the Committee thought the property could be used it should at once approach Premier Duplessis' committee on hospital problems. Mr. Fellowes and two members of the Technical Committee carefully went over the hospital property and arrived at the following conclusions: 1. The site was exceptionally good. It was close to the great hospitals, the School for Crippled Children, and the University. Transportation difficulties would be minimized. 2. The buildings, with the exception of the central one, were obsolete. The heating system would have to be replaced. Alter­ ations and repairs would be costly. 3. A new building for the day school would be necessary. It was felt that there were many advantages to this proposa! but to provide the facilities required would involve an ex­ penditure of $1,500,00, at least, in addition to the buildings and property of the hospital. A delegation went to see Dr. Lasalle, a member of the Quebec Hospital Committee, concerning the above proposa!. Dr. Lasalle was aware of what had transpired but seemed to think that the Children's Hospital was asking the Government for a sum of money considerably in excess of what it was prepared to pay, f$1,500,000}. He was not entirely dis­ couraging, however, and stated that the proper procedure would be for the Committee to prepare a brief for presentation to his Committee. The brief was prepared but severa! months elapsed before an appointment could be arranged. - llS -

The second important and unfortunate event which occurred at this time was the death of Mr. Dunton. He had been closely identified with the project for a long time and the Committee had counted a great deal on his influence with the Premier. Early in 1956 the meeting with the Hospital Committee took place. Among those attending was the Deputy Minister of Health for the Province. It was at once made clear that the Quebec Hospital Committee did not consider a training school for mentally retarded to be a health problem. The Committee considered it to be primarily one of education. They estimated the factor of health at only ten per cent of the overall responsibility, and the Deputy Minister pledged the support of the Ministry to provide that proportion of the annual cost of operation if and when the new institution was functioning. This was a profound and bitter disappointment to the Technical Committee. It was not, nevertheless, entirely surprising. Mont Providence had closed as a school for mentally retarded children in 1955. This in itself had been a great blow to those interested in the English-speaking group. For it was because of the establishment of that great institution that efforts had been accelerated to secure a school for the English, as has already been mentioned. It appeared that Mont Providence had been initially categorized by the Provincial Government as a hospital, and had been able, therefore, to secure substantial Federal - 119-

Grants. Ottawa subsequently took the stand that Mont Providence was not, in effect, a hospital at all, and the Grants were withdrawn. When this occurred the Premier ordered the children who were in residence returned to their homes or place of origin, and the institution became a refuge for thé insane. Thus, the decision of the Hospital Committee is better understood. Mr. Bancroft, Chairman of the Citizens' Committee, invited to lunch the new chairman of the School Commission, Mr. John P. Rowat. Others present were the Executive Dir­ ector of the Council and a few members of the Citizens' Comrnittee. Mr. Rowat had been a member of this Committee so that he was familiar with developments. He did not, however, have the same interest in the subject as had his predecessor, Mr. Dunton. Nor did he have the close relationship with the Premier which Mr. Dunton enjoyed. Mr. Rowat talked of the great expansion programme of the Protestant schools and the prev~iling shortage of teach­ ers. One sensed that this project, so close to the hearts of those interested, was low on the list of priorities on Mr. Rowat's agenda. He suggested that the Technical Committee meet again and prepare a summary of their reports whi.ch he promised the School Board would consider. In the spring of 1956 the School Board offered Aberdeen School to the Council Committee. After careful in­ ve·stigation it was found that the building was obsolete and that it would be most expansive to renovate and too costly - 1"2'0 - to maintain. Furthermore, there were no playground fac­ ilities, and these are of vital importance. However, the School Board's offer was a notable development. It represent­ ed a gift in excess of $200,000. Aberdeen School has since been sold for more than that amount. The School Board accepted and understood the reasons for the Committee's refusal and promised that a suitable building would be offered to the Committee at sorne future date. This is the point reached toward the close of 1956, thirty-seven years since the Council first became interested in the subject. Has any progress been made? Apparently not, beyond a reservoir of determination that has been building up.

General Considerations

In this chapter the writer has been concerned with the Council's activity in behalf of the educable mentally retarded group of children. It must be said that there is an increasing wide spread concern for the non-educable group, and in planning for the future, attention will have to be given to this group, as Mr. Dunton himself said. An important new influence in regard to this problem is the Association for the Help of Retarded Children, which was formed in 1951. This is a group of parents of retarded children most of whom are uneducable. In 1956 the Associa­ tion was operating five classes in and about Montreal. There were 38 chi1dren enrolled, 22 of whom were Protestant. There was a waiting list of 28, of whom 12 were Protestant. - 121 -

Of the children in the classes there were: 14 Mongolian idiots 2 Hydrocephalie idiots 6 Epiliptic or petit mal The I.Q.'s were as follows: 5 below 35 18 between 35 and 50 15 below 50 and 65 The classes are conducted in the morning only, but even so, one can imagine the relief those hours must give to harassed parents. The Association will expand its pro­ gramme as greater interest. in the project is aroused in the community and as funds become available. This type of direct action to institute the required service is, of course, a relief. But it is hardly a sub­ stitute for the necessary large-scale provisions possible only through participation of the Provincial Government. What are the reasons for the apathy which pervades the whole problem of the mentally retarded in the Province of Quebec? Why has the Quebec Government been so consistent in its negative attitude toward this tremendous issue, even in the knowledge that great atrides have been made elsewhere? It has been aaid that there is no glamour attached to work with this pathetic group of people. Perhaps that is so. In the field of the physically handicapped one can quickly see the effective results of treatment. It is dramatic to point to a paraplegie who is earning his own living--there are few opportunities to do so with the mental defective. If these people who live in the twilight of the world - 122 - had the wit to speak, would they not say with Shylock ••• If you prick us, do we not bleed? If you tickle us, do we not laugh? If you poison us, do we not die? Apd if you wrong us, shall we not revenge?l Revenge? Of course not. They are too kind and innocent for the most part, but they do have rights as all other people have; the right to be loved, to be protected and to be ed­ ucated to the limit of their capabilities. In many places this right of education, at least for the educable, has been accepted as a responsibility of the state or the local school authority. The parents of mentally retarded children have rights too. They pay school taxes as other people do. Why then the discrimination against these children in the Province of Quebec? One reason is that the problem may not be so vital to the French because their great religious institutions can absorb so many of these children in their large congregate schools and residences. For instance, two institutions out­ sida Quebec City, both with a population of over 400, care for from 150 to 200 mentally retarded each. I n a French protection school in the Laurentians, till quite recently, one third of the boys were mentally deficient, many to a serious degree. 2 In the large French family a retarded child is more easily integrated than in the small English family. He is

1William Shakespeare, The Marchant of V eni ce, Act ·rri, Scene 1. 2 Most of these boys have recently been placed on farms. - 123 - not so conspicuous nor so great a problem because of the number in the household who can share the onus of his care and help to teach him simple tasks which enable him to be­ come a useful member of the family. This implies no criticism of the French attitude to the problem. It is an attempt to offer a partial explanation of the attitude. The writer would like to inject a positive note. It is, of course, inevitable that as time goes on there will be more special classes in the school system for the less ser­ iously retarded child. It is equally certain that in time institutions will be provided for the care and treatment of the more serious cases. It is not logical that when so much is being done for almost every type of physical handicap and mental illness that the mentally retarded should be ignored indefinitely. Another type of care is possible that has never been given serious consideration on this continent. This is the colony concept, which is carried out successfully in certain countries of Europe, notably Belgium and Holland. There is, for example, a town in northern Belgium called Gee11 which for 1,300( years has been caring for the mentally ill in foster homes. Before the last war the town had a population of 21,000 people, thousands of whom were mental cases.

The Geel system is regarded by many as the mos~ humane method of dealing with the mentally ill. They have the opportunity there of permanent contact with normal people,

1sometimes spelled Gheel. - 12'4 -

and many find employrnent. There is considerable liberty of movement which is possible because the city, like other Belgium towns, is surrounded by a wall. The town seems to have evolved through the centuries a congregate understanding and compassion which one can sense as though it were tangible. In referring to the cases one hears everywhere the tender and beautiful phrase "Les enfants 1 11 gy bon Dieu • This is not the place to describe the organization of the work in Geel, but it does seem to the writer that the basic philosophy could be adapted to this province. In such a colony, large or small, a retarded person could live out his whole life with some measure of satisfaction, thus ful­ filling the obligation of society to provide opportuhities for such people according to their capacities. The foster family system of Geel bas been endorsed by many alienists, several international congresses have proclaimed its therapeutic and social value, and it is a much less costly approach than institutional care.

1 The children of God. - 12? -

Summary-Analysis

This is a problem the resolution of which is clearly demanded for humanitarian as well as efficiency considerations. It has been a concern of the Council for over a third of a century--thirty-eight years to be exact. Its status remains about the same as it was in 1919. In most sections of the western world the approach to this question bas been fairly uniform, yet in Quebec there bas been no progress. The Council's admirable, even righteous determination in the matter has been matched only by its intelligent and conscientious approach. There bas been continuous study and revision of ideas in accordanoe with new understanding and awareness. The most careful plans have been made and re-made time and time again. The Provincial Government bas held out hope from the beginning and the Council bas acted in response to this. Resolutions have been passed, petitions made, experts have been called in, and the assistance o~ other organizations bas been secured. Submissions have gone forward to the Government--no less than fourteen of them--in the most politic mannar and by persons of the greatest prestige. Still the record of the Government is one of encour­ agement and deferment, of promise and of broken promises, of tentative action and retrenchment. It is obvious that the work of the Council has been a model of efficiency, and yet it bas not borne fruit. How can one account for this - 126- frustrating situation? The problem, of course, is not simple. There are many complexities, such as the lack of clarity regarding responsibility, vis ~ vis the health and education arms of the Government. But the most salient consideration seems to be that the problem is not so vital to the French because of family structure, the legal code, education and welfare practices. One consideration which must be borne in mind when discussing affairs of this nature in relation to Quebec is the social and legal background of the Province. The strength of family ties in the French Canadian society is not only traditional; it is re­ cognized by the Civil Code in articles 165-168, which make it a duty for parents and children to provide mutual support in time of need. Supplementing this is the traditional work of the Roman Catholic Church, through par.ish organizations, in arranging care for unfortunate members. Because of these traditions, the care of handicapped persons has never been as great a problem as one would expect in a Province where the Government has not entered directly into this field.l Government is usually not the innovater but the re­ flection of a culture. 2 Evidentally there is not sufficient social experience in the nature of institutional answers to this problem to become crystallized in government action. It does seem obvious also that a constant factor throughout has been the absence of French participation in study and agitation.

1 Young Men's Section of the Board of Trade. "Report of the Special Committee for the Study of Facilities for Mentally Handicapped Children", 1956. Not for publication. 2 John S.Broadway, Law and Social Work, (The University of Chicago Press, 1929), pp. 9-10. - 12'7-

Likewise, it appears that the Council has thus far acted without appreciation of the French Roman Catholic at ti tude in Que bec· with regard to the problem. Now new pressures are in operation. It seems clearer that the problem is basically one of education. There is the additional possibility of the colony system of Geel which might provide a different pattern of solution in at least sorne areas. Withall, interest and determination, though stiffled, have not withered but have become stronger. Additional efforts will be made. If this analysis is correct, it seems clear that the renewed determination and fresh attempts, to be most fruit­ fu!, should begin with the basic situation of the French Canadian attitudes toward the problern. - 128 -

CHAPTER V

CONCLUSIONS

••• All mankind must learn to be equal with~ut Ïeing identical, if it is to surv1ve.

Observations from Preceding Chapters

In reviewing the material which has been presented in the previous chapters there are certain salient observations which should be noted. Chapter I showed that the social services of the Pro­ vince of Quebec developed as the natural expression of the peculiar historical and cultural background. The English community, however, also responded to influences which stemmed from western Europe, and in particular to those emanating from Great Britain via the United States. In Chapter II we observed that the decision to create the Council, reflecting the influences mentioned above, rep­ resented a departure from, or innovation in, the dominant culture. It was further noted that the English community, while conscious of its natural context, nevertheless, in view of the cultural differences within the community of Montreal, decided to organize separately without reference to the French.

~ason Wade, The French Canadian Outlook. (New York: The Viking Press, 1946), p.l82. - 129 -

This was a departure in part from the plan originally form­ ulated by Howard Falk, the prime mover in the organization of the Council. The question here is not whether the decision of the English to form the Council was right or wrong. This decision is simply accepted as a social fact, which yields the observation that, in view of the total community this was at least an affirmation of a cornrnunity schism if not, in fact, a divisive development. A further observation was the influence which this one man exerted in the formative days of the Council. Although his social philosophy appears to have been disregarded in faveur of welfare chiefly from traditional charitable motives, Falk's influence as a social reformer was a vital and ener­ gizing force; his work constituted the foundation of the Council. Chapter III noted the widespread reluctance of agencies to join Financial Federation in fear of losing autonomy. This fear is still prevalent. Yet many of these same agencies were and are eager to share in the benefits which accrue from mem­ bership in the Council. Equally important was the great finesse with which the problem was handled. It was observed that it was largely due to pressure from the business élite that Federation came into being and that the motivating force was economy rather than reform. In Chapter IV we examined the long, unsuccessful struggle, spearheaded by the Council, for the care and treatment of the mentally retarded. The struggle appears to be a dramatic - 130 - illustration of the conflict of cultural forces with regard to the solution of a vital social problem: the enigma of the prevailing attitudes in Quebec toward the care and treatment of the mentally retarded. This examination at least reinforces the conclusion that the Council's objectives cannot be fully achieved except as they are harmonious with the attitudes and practices within the dominant cultural group. A number of these observations might be further invest­ igated with profit. However, they lead the writer to suggest as the main conclusion of this work; namely, that the basic problem of the Council is one of inter-cultural relationships. The purpose of this chapter, therefore, is to further expose the nature of the problem and to make certain suggestions which might be worthy of the Council's consideration as guides for action. The material is set forth in four sections. The first attempts partially to answer the question, "What is the realis­ tic situation vis-~-vis the English and French in Quebec?" The second section poses two additional questions, (1 "What do we know about intercultural problems?" and (2 "What are the methods of dealing with them?" Section three outlines sorne recent changes in the French welfare structure and the fourth section contains the final conclusions. - 131 -

The English and the French in Quebec

Both English and French entertain a number of miscon­ ceptions concerning French Canada which must be erased if the two races are to live and work in harmony and in mutual respect. Foremost among these is what has come to be known as "The French Canadian Myth"--the main points of which are that the French in Quebec are the carriers of a culture that is unique and irreconcilable with that of other ethnfuc groups, and that this culture is a direct carry-over from France. This myth is due ·to two factors. First,the writing of Canadian historians, whose works have been written from a partisan point of view, as Wade pointed out. Second, the published studies of sociologists and anthropologiàtsl ••• who have looked upon French Canada as a sort of 'Folk Society.' Because of their lack of historical knowledge these social scientists have identified French Canada with the so-called underdeveloped areas of the world, and used in its des­ cription and analysis the concepts elaborated in the study of societies without written history.2 The writings of the past need to be carefully re­ examined and future research should be based on sound hypotheses and empirical evidence.

1 Two works in question: St.Denis a French Canadian Parish, by Horace Miner and French Canada in Transition, by Everett Cherrington Hughes. 2 Philip Garigue, A Biblio ra hical Introduction to the Study of French Canada, Librairie Dominicaine, 1956, p.9. - 132 -

1 Mason Wade's history written with integrity and skill, is being widely read and is doing much to place the problem in focus. Philip Garigue, anthropologist and dynamic McGill professer, is one of a group of youhger French social scien­ tists who are writing and teaching on this subject and their influence is likely to be far reaching. It is perhaps sig­ nificant that neither Garigue nor Wade is Quebecois. The one is English by birth of a French father and brought up in France and England. The other is American and Catholic. Both are non-partisan and are able, therefore, to study French Canada with scientific detachrnent and with sound scholarship. It is not inappropriate to point out in this connection that the sound social development of Quebec in the future will depend heavily on such scientific work and on the deve1opment of social practice which incorporates it.

The motto of Quebec is "~~souviens." When the French Canadian says "! remember," it is not old France to which he refers but to the period in New France before the conquest. He is in a position of ambivalence; neglected and deserted by his mother, he was adopted by another for whom he has an abiding attachment, but a r nostalgia remains. In sorne cases this has resulted in a deep rooted disturbance which erupts every now and then in nationalism but which is not representative of the French people as a whole. The French Canadian is first and foremost Canadien (Canadian). It was the English who invented the sobriquet "French Canadiani and 1 Op.cit. 2 Michel Brunet, Canadians et Canadiens (Montreal: Editions Fides, 1954), p.p. 17_32 • - 133 - many of .the race resent this. Again, when the French Canadian says "I remember" he refers to his spiritual dependance on Rome and it is the deeply ingrown tradition of the Church which permeates all his in­ stitutions. The Roman Catholic Church teaches that ••• it is the duty of the individual to provide assistance to the destitute and the unfortunate according to his means, The state should intervene only when private initiative finds it impossible to supply existing needs.l These needs, as we have shown, were largely supplied by individual private charity and by the Church till the first World War, the subsequent depression, industrialization and urbanization created situations of a complexity and magnitude with which the depleted coffers of the dioceses and the re­ ligious orders could not cope. They, like the Protestant institutions, could no longer carry the burden of welfare needs without substantial help from Government. In Quebec ••• --the relationship between Church and state has always taken for granted the fullest and most intimate co-operation. The actual situation is one of unwritten global alliance.2 The Church was, at the beginning, and has remained, the chief almoner for the state. The above analys is by no rneans obliterates the fact of cultural differences. It does, however suggest that the French and English are, in fact, much more akin than otherwise in the inevitability, of eventual convergence and bence the possibility and the importance of co-activity.

~inville, op.cit., p.46. 2Fallardeau, op.cit., p.ll3. - 134 -

Intercultural Problems and Methods of Dealing with Them

In dealing with a situation such as has been described, it is important that there be profound awareness of cultural differences, a positive appreciation of these differences and a willingness to understand and to accept compromise. To develop the "awareness" requires the widest group participation and inter-group activity. Here we may borrow from the teaching of social group work practice and use also the technique of what is now termed Inter-Group Education. This has been defined as The problem of liberalizing attitudes and actions, of deepening skills and insights-- in sum, of changing people in democratie directions by educational means.l In the introduction to this work the writer stated that it was to be a study in community organization. All that has gone before has been in effect historical background and the description of the origins of one such organization, but no forma! definition of the term has thus far been attempted. Murray G. Ross quotes a definition by C.F.McNeil as follows: Community organization ••• haS' been defined as the process of bringing about ihd main­ taining a progressively and more effective adjustment between social welfare resources and social welfare needs within a geographical area or functional field. Its goals are consistent with all social work goals in that its primary focus is upon the needs of the

1Lloyd and Elaine Cook, Op.cit., p.ix. - 135 -

people and provision of means of meeting these needs in a manner consistent with the precepts of democratie living. 1 Ross goes on to explain that social work has preempted the term "community organization" and that many object because they see "the potential needs of a community as being far 2 broader than the current concept of welfare." Whether the term "community organization" is used in the first or the latter sense, it presupposes a knowledge of the mores, the significance of existing minorities, cultural factors and the subtle influences of religious and racial prejudices. The Cooks use the phrase, "the positive correlation of re­ ligion and prejudice"3, a compelling phrase indeed in relation to the situation in Montreal. In most of the literature on this subject the emphasis is on the involvement of the sub-groups in the growth of the community. In Montreal the situation is paradoxical. The Council is the more highly developed planning body of the city, yet it represents a minority. The problem of the Council is, therefore, an exceedingly involved one. It represents a min- ority struggling for its own rights. At the same time it holds an advanced salient in welfare development in which it profoundly believes, and which, it assumes, the dominant cultural group will eventually approach in sorne form. Yet, as

~urray G. Ross, Op.Cit., p.l6. 2Ibid., p.l9. 3Lloyd and Elaine Cook, Intergroup Education (New York: McGraw-Hill Book Co., Inc., 1954) p.91. - 136 - has been previously seen, its will cannot be forced on the majority group either as to pace of development or form of welfare organization. Its problem would seem to be that of accepting the role of representative of a minority while building strong ties with the majority--ties through which it may be permitted to exert leadership where and when re­ quired. The difficulty and delicacy of this task seems obvious. The key effort required of the English is the achievement of not only a fuller acceptance and understanding of themselves as a minority group (with the psychological problems of any minority) but a deep awareness and understanding of the history and motivating impulses of the majority. If our gravest problems are to be solved at all, they must be solved in terms of our common ultimate values.l The values in the two groups are demonstrably often not compatible. Then, to paraphrase Angell, the frame of reference must be sufficiently broad in scope to permit differences to be worked out.2 From the standpoint of community organization practice, it appears that the Council might profit from accepting a more limited role; namely that of leadership in respect to the functional community of we1fare agencies within the Eng1ish community, whi1e re1ying on the dominant group for

1 Robert Coo1ey Ange11, The Inte~ration of American Society, (New York: McGraw-Hil1 Book Col, Inc., 1941), p.215. 2 Ibid., p.l9. - 137 - leadership in respect to the community in the total geograph­ ical sense and exerting its efforts to strengthen and support that leadership. Yet another implication. Falk came to Montreal fresh from his experience in the United States and Winnipeg. He was accustomed to viewing situations from the perspective of one whose experience was in homogeneous cultures. It is doubtful if he accepted, or even considered for~ time, the dual cultural aspect of the new environment in which he found himself. Even in recognizing differences, it is possible that he viewed them as variations of North American culture which is the emerging concept. In this respect, as in others, he was ahead of his time, though very possibly from chance rather than objective analysis. He accepted the .fact that the city was divided into racial groups for welfare purposes but he believed this was because of lack of organization rather than of necessity. He proposed in his survey, the reader will remember, the creation of three councils, one for the Protestants, one for the Jews and one for the Catholics, the latter to serve both the English and the French. Superimposed over these was to 1 be a "Central Committee on Co-operation", with five repres­ entatives from each council. Theoretically this seemed like a sensible structure but it appeared unrealistic and premature to the English group at the time and idea was vetoed.

1 Falk Survey, op.cit., p.35. - 138 -

Recent Changes in the Welfare Structure

Meanwhile there are observable changes in the Quebec picture which appear to augur the success of such an approach. It is not the writer's intention to discuss the fiscal aspects of the Provincial Government's welfare programme and their implication insofar as the Council is concerned. This subject has been dealt with elsewhere.1 However, it does seem necessary to touch on two factors which have influenced the welfare scene in Quebec. The first of these was the formation of the Provincial Ministry of Social Welfare and of Youth just over ten years ago. Since then notable progress has been made in the field of youth pro­ tection in the Province of Quebec which has affected many of the agencies in the Council. Institutions have received more adequate financial support. Annual conferences have taken place at which the directors of institutions, social workers and specialists from many disciplines exchange views with government officials and participate in planning and the de­ velopment of future policy. The Ministry, or Department, as it is more familiarly known to the English, has been responsible for important legislation since 1950. It has embarked on a broad programme of foster home placement. 2 This latter is consistent with the religious doctrine of the sanctity of family life and is

lNotably in Dorothy Aiken's Thesis, op.cit. 2Placement Familial ~ des foyers nourricier. - 139 - consistent also with the modern teaching of social work. An important development about to take place is the transfer to the Department, from the Ministry of Health, of the responsibility of administering the Quebec Publiç Char­ ities Act, except for hospitals and similar institutions. This means that the Provincial Government's total welfare programme will be centralized in one department--a department which has demonstrated a progressive attitude to welfare problems, which is sensitive to modern welfare con­ cepts and which has been most understanding in regard to the special problems of the English agencies. In reference to the important change mentioned above the Council in its official orden recently stated A••• consequence of the move is the possibility of systematic study of the administration of the Quebec Public Charities Act as applied to the private welfare agencies. Already a Tripartite Committee, with representatives of the Province, the City, and the private agencies is ernployed in study of the Quebec Public Charities Act with a view to irnprovernenfs in administration. Much may corne of this. A further developrnent should be noted. Toward the close of last year the Minister of the Departrnent appointed a srnall cornrnittee to advise him on the structure and co-ordination of servi ces f or JUVen1. '1 e d e linquen t s throug h ou t the p rov1nce. . 2 The "Angle-Protestant" element is represented on this cornmittee

1 The Cornmentator, Montreal Council of Social Agencies, Vol. 9, No.l, April, 1957, p.l. 2 Le Corn1te• l' d'etude"' sur la Structure et la Coordination des Serviëes de r~adaptation-ctes J eunes D€1Inguants. - 140 - by the present writer. The appointment of an English­ speaking person is significant in that again the Protestant ' community is 1rnvolved in the overall planning for provincial services. The Provincial Government is considering plans to re­ organize and extend the services of the Social Welfare Courts and probation, to improve detention facilities and to erect a closed institution for delinquents who do not respond to treatment in the open institutions. It is intended also to create treatment centres for both male and female adolescents. The Council since its inception has been pressing the Government continually for all of these resources. The second factor which has had an important bearing on the welfare structure in Quebec is the growing participation of laymen in social work. There was little lay participation in Catholic Welfare up to the thirties. The French were only beginning then to think in terms of centralized agencies. Professional social work training did not begin in the French universities till late in the thirties. When it did begin the recognized train­ ing procedures fitted quite comfortably within the Catholic framework. The curriculum was adapted to Roman Catholic pre­ cepts, taking into consideration the Church law on problems of marriage, the moral law in regard to abortion, birth con- trol and divorce. The Roman Catholic social worker believes that more people are made sure of their faith by " ••• visible acts of - 141 -

1 charity than by theo1ogica1 arguments." He is a militant member of his faith. Once professiona1 training was accepted by the French the value of lay participation in welfare was soon realized. The increasing number of laymen entering the Catholic welfare field in Quebec has influenced the attitudes of the Church in regard to welfare, especially in the field of health and youth protection. By virtue of greatly increased investment in and support of welfare institutions, the Provincial Government has assumed a measure of control which has resulted in improve­ ments in the methods of care and treatment of all kinds. Uniforms have disappeared from most institutions and the traditional "institutional grey" has turned to colour. There has been in many cases a metamorphosis in atmosphere. There bas also been sorne resistance to change as might be expected. Today the clergy are attending conferences at all levels, both in Quebec and elsewhere. They take their places on committees with men and women of all faiths. There are at !east two priests on the Board of Governors of the Canadian Welfare Council. All this is not to say that the influence of the Church in social service is decreasing--on the contrary-but the attitudes are changing, becoming as time goes on more liberal and progressive.

1Rudolph Villeneuve, Catholic Social Work {Montreal: Grand Seminaire de Montreal, 1955), p.l05. - 142 -

Final Conclusions

••• neither attitudes nor actions are inborn. They ale learned ••• they can be unlearned ••• These concluding paragraphs point back to the earlier findings of this study regarding the decision of the English to go their own way. Actually, they had little choice if any progress was to be made at all within the English milieu. These paragraphs also reflect back to the philosophy of welfare activity and those points made so explicitly by the moving spirit in the beginning. Given an effective col­ laboration between the two racial groups how might this be strengthened through the reaffirmation of the economie base for welfare and more specifie ties with both industry and labour? Would this reaffirmation assist in the development of intercultural relations? French attitudes may change with urbanization and in­ dustrialisation and a growing desire to improve the standard of living as the French move closer to English concepts. English attitudes may change from the same causal factor and as English control of the provincial economy becomes less­ ened because of government participation in great industrial undertakings and the more equitable distribution of wealth. The unfortunate attitudes of superiority which have sometimes accompanied English control of capital will inevitably give way. Finally, the attitudes of both English and French may change by the development of closer and more effective lines

1 Lloyd and Elaine Cook, op.cit., p.l62. - 143 - of communication through language and the written word. The English in Quebec too often fall back upon the cliché that as a race they are not proficient at languages; that the French are sufficiently bilingual so that it is not important for them to learn to speak French. Neither of these assertions is based on fact. The writer suggests that the future welfare policy for Montreal as a community will follow one of two lines of development in either of which the Council can continue to play a major and dynarnic role, especially if inter-cultural education is a feature of Council activity. The first is based on the concept of a dominant culture of which the English and the French are but different ex­ pressions. This is the point of view presented by the Massay Report.1 Welfare work could thus be centralized but with linguistic branches. The second policy is founded on the premise that there are basic differences between the two cultures which cannot be reconciled. This is the point of view of the French Canadian nationalists. Such being the case the welfare structure will rernain separated as the cultural differences prevent, in this approach, a single integrated policy for the whole of Montreal. In these circumstances the key personnel both lay and pro- fessional must be carefully trained to fully understand what the characteristic differences are in order to act as effective liaison between the ethnie groups.

1 canada, Report Royal Commission on National Develop­ ment in the Arts, Letters and Sciences, (Ottawa: Queen's Printer, 1951), p.271. - 144 -

Of these two possible lines of development the first is the more optimistic. It is also the more credible. But it pre-supposes a vital and energetic centralizing body which the Inter-Federation Council could very well become given the most qualified and enlightened leadership and membership. This is what Falk envisioned in 1919. The idea was premature then, as has been stated. It was perhaps still somewhat premature when the Inter-Federation Council was established in 1941. Nevertheless, this Council was an effective centralizing body during its early years largely due to the staff work provided by the Montreal Council of Social Agencies. When this was no longer available the effectiveness declined. The Inter-Federation Council could, however, be reorganized and reanimated if beth the English and the French so decided. Such being the case it should be provided with a small and permanent staff chosen for their special skills, whose salaries could be defrayed on a pro­ rata basis by the four Federations. In concluding this study the writer wishes to make two comments emphasizing what he believes to be the essence of his findings. First--that all welfare developments in Montreal are mutually important. In Montreal the four welfare divisions are strangely dependent on one another, much as are the segments of an orange; the core of the fruit being the Provincial Gov­ ernment and the enfolding rind the Roman Catholic Church. The growth of the fruit involves the growth of each segment - 145 - as a part of the whole. Second--whatever accommo*dations the Council makes in the future there is no question of doubt that it will con­ tinue to perform a vital role. In sum--the Montreal Council of Social Agencies has been paid its greatest compliment by an eminent French Canadian social scientist who referred to it as " ••• a magnificent example of methodical and coherent organization."1

lMinville, op.cit., p.63. APPENDIX A

MONTREAL COUNCIL OF SOCIAL AGENCIES LIST OF MEMBER AGENCIES MARCH, 1957

Anglican Church of Canada, Children's Service Centre Diocese of Montreal Daily Vacation Schools Association for the Help of Retarded Children (Quebec) Inc. Department of Veterans Affaira Social Service Division Baron de Hirsch Institute Evangelical Lutheran Imm- B'nai B'rith Youth Organization igration and Service Centre Boy Scouts Association Montreal Family Welfare Association District Girls' Cottage School Boys' Farm and Training School Girls' Counselling Centre Brehmer Rest Inc. Grace Dart Hospital Canadian Arthritis and Rheumatism Society, Quebec Herzl Health Service Centre Division Imperial Order Daughters of Canadian Association of Social the Empire, Montreal Workers (Montreal English Municipal Chapter Branch) Irish Protestant Benevolent Canadian Girl Guides, Montreal Society Association Jewish Child Welfare Bureau Canadian Hemophilia Society Jewish General Hospital Canadian Institute for the Blind, Quebec Division Jewish Hospital of Hope Canadian Red Cross Society, Jewish Immigrant Aid Quebec Division Society of Canada Cancer Aid League, Inc. Jewish Junior Welfare League Cerebral Palsy Association Jewish Vocational Service of Quebec, Inc., John Howard Sooiety of Quebec Child Health Association Julius Richardson Convalescent Hospital - 146 - - 147 -

Junior League of Montreal Murray Bay Convalescent Home Lachine Eenevolent Association National Council of Jewish Mackay Institution for Women, Montreal Section Protestant Deaf Mutes Negro Community Centre Marriage Counselling Centre of Montreal Neighbourhood House of Montreal McGill School for Graduate Nurses Occupational Therapy and Rehabilitation Centre McGill School of Social Work Old Brewery Mission Inc. Mental Hygiene Institute Presbyterian Church in Canada Montreal Association Presbytery of Montreal for the Blind Reddy Memorial Hospital Montreal Boys' Association Rosemount Boys' Club Montreal Children's Hospital Royal Edward Laurentian Montreal Council of Women Hospital Montreal Day Nursery Royal Victoria Hospital, Social Service Department Montreal Diet Dispensary St.Andrew's Youth Centre Montreal General Hospital St.Columba House Montreal Girls' Association St. George's Society of Montreal Montreal Hebrew Old People's and Sheltering Home St.Laurent Neighbourhood Association Montreal Ladies Benevolent and Protestant Orphan Society Salvation Army Montreal League for the Hard Sheltering Home of Hearing Soc i ety for the Protection Montreal Neurological of Women and Children Institute Travellers' Aid Society of Montreal Montreal Parks and Playgrounds Association Tyndale House Montreal Protestant Homes Unitarian Church of the Messiah Sinai Sanatorium Mount United Church of Canada, Montreal Presbytery - 148 -

University Settlement of Montreal Victorian Order of Nurses Weredale House Women's Volun,ary Services, Montreal Young Men's Christian Association Young Men's and Young Women's Hebrew Association of Montreal Young Women's Christian Association APPENDIX B

LIST OF AGENCIES ATTENDING ORGANIZATIONAL MEETING OF THE COUNCIL JANUARY, 1919.

The minutes of this meeting state that there were twenty-five different charity and other orga~izations present, yet the list contained twenty-seven , as follows: The American Presbyterian Church Rev. Robert Johnston Mr. H. R. Wood The Methodist Church Rev. W. Harold Young The Presbyterian Church Mr. J • G. Smith Dorchester House Rev. John Chisholm Girls' Cottage School Miss Doble Miss A.H.Grier Sheltering Home Mrs. Fairman Mrs. Duncan Federated Jewish Philanthropies Mr. A. Vinberg Miss B. Glassman City Improvement League Dr. W. H. Atherton Church of the Messiah Mr. G. Falconer The Charity Organization Mr. J.B.Dawson Committee of Sixteen Miss Phinny Colonel Gilday Irish Protestant Benevolent J. H. Carson Society \v. Geraghty Northern Branch, Women's Mrs. David Scott Christian Temperance Union Women's Directory Miss Grier Miss Plon Miss Lawless Royal Edward Institute Miss Hall Miss Rock - 149 - - 150 -

Western Hospital Miss Boswell Young Men's Christian Mr. G. Lyman Association Mr. J. O. Lough Victorian Order of Nurses Miss Prevost Miss Delaney Mrs. Arthur Drummond Mrs. Ma thews Social Service, Children's Mrs. Hilton Memorial Hospital Fabian Society Mrs.Fenwick-Williams Scoutmasters' Club Mr. Jocker St.Andrew's Society Mr. W. Drysdale Montreal Foundling Hospital Miss Phillips and Baby Welfare The Congregational Church Rev. T.W.Davidson The Women's Club Mrs. John Scott Interdenominational Committee Rev. Dr.E.I.Hart The Montreal Brotherhood F. R. Yule Federation

1council Minutes, Vol.i, 1919-1921, p.3. APPENDIX C

FINANCIAL FEDERATION FIRST BOARD OF DIRECTORS1

Atholstan, Lord Main-4191 Anderson, Mrs. Duncan Plateau-1756 Anderson, A.D. Main-3396 Braithwaite, A.D. Uptown-6464 *Brier1ey, J.s. Westmount-594 Dale, R.J ~~ . Main-4811 Dixon, Mrs. Wellington Westmount-1644 *Drummond, Mrs. Arthur, Uptown-7180 Drummond, H. R. Uptown-7080 Fairman, F. Wilson Main-4725 Holt, C.M., K.C. Main-318 Hutchison, James Main-249 Lindsay, C. W. Uptown-~120 *Leggat, Wm. Main-1144 L'Esperance, E.J. Main-3774 *Lyman, George Main-7733 Marler, w. DeM. Main-8~50 Mitchell, Mrs. Alister Uptown-8024 Molson, Kenneth Uptown-1944 Molson, J.D. Uptown-2098 Montgomery, George, K.C. Main-42 Murphy, A. McA. P1ateau-627 McDona1d, John Main-3660 McBride, J.A. Westmount-36 Pangman, J.J.M. Uptown-96 *Reford, Mrs. R.W. Uptown-21 Reid, Dr. Helen R.Y. Uptown-4405 Robertson, Farquhar Main-4610 Ross, Mrs. J.W. Uptown-8138 Russell, Mrs. Colin Uptown-853 *Southam, F.N. Plateau-1200 Stewart, M.M. Uptown-5778 Thornton, A.D. Plateau-3600 Trower, W.K. Main-4750 Wa1ters, Percy Uptown-5966 *Webster, Hon. Lorne C. Main-644

lFinancial Federation Minutes 1922, p.41. *Members of the Executive Committee. Note the old telephone numbers. - 151 - APPENDIX D

RED FEATHER AGENCIES MARCH, 1957

Child Health Association Children's Service Centre Daily Vacation Schools Family Welfare Association Girls' Cottage School Girls' Counselling Centre John Howard Society of Quebec Lachine Benevolent Association Lakeshore Welfare Services Marriage Counselling Centre of Montreal Mental Hygiene Institute Montreal Boys' Association Montreal Council of Social Agencies. Montreal Day Nursery Montreal Diet Dispensary Montreal Ladies Benevolent and Protestant Orphan Society (Summerhill House) Montreal Parks & Playgrounds Association Montreal Young Women's Christian Association Murray Bay Convalescent Home Negro Community Centre Occupational Therapy & Rehabilitation Centre Rosemount Boys' Club St.Andrew's Youth Centre lt.Laurent Neighbourhood Association Sheltering Home Society for the Protection of Women and Children Travellers' Aid Society of Montreal, Inc. University Settlement Victorian Order of Nurses Weredale House Women's Voluntary Services (Montreal)

- 152 - BIBLIOGRAPHY

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----~--· L'aspect economique du probleme Canadien-francais. Montreal: Editions Bellarmin, N.436, 1954. Myrdal, Alva, et al. America's Role in International Social Welfare. ~ew YoDk: Columbia University Press, 1955. Pare,~ Simone. Groupes et Service Social. Quebec: Les Presses Universitaires Laval, 1956. Repplier, Agnes. Mere' Marie of the Ursulines. New York: Doubleday, Doran and Co., Inc., l931. Ross, Aileen. "Philanthrophy in an Urban Community." A reprint from Canadian Journal of Economies and Political Science. Nov., 1952. Ross, Murray G. Community Organization Theory and Principles. New York: Harper and Brothers, 1955. Solomon, Ben. "Why We Have Not Solved the Delinquency Problem." Federal Probation. Washington: U.S.Department of Justice, Dec., 1953. Tregold, A.F. A Textbook of Mental Deficiency. London: Tindall and Cox, 1937. Villeneuve, Rudolph. Catholic Social Work. Montreal: Grand Seminaire de Montreal, 1955. Vinay, M.P. Le Service Social. Montreal: Laplante et Langevin, 1949. Wade, F. Mason. The French Canadian Outlook. New York: The Viking Press, 1946.

----~-· The French Canadians 1760-1945. Toronto: The Macmillan Co., 1955. Whitton, Charlotte. "The Canadian Council on Child Welf are 1920. Canadian Welfare. Ottawa: Canadian Welfare Council, May 1, 1956, pp.3-7. Who's Who in Canada. Toronto International Press Ltd.,l927. The Diamond Jubilee of Confederation ed. - 156 -

Reports

Montreal Council of Social Agencies. Annual Reports • • Brief of the Montreal Council of Social Agencies. ----~s-u~bmitted to the Royal Commission of Inquiry on Constitutional Problems of the Province of Quebec, April, 1954.

----~~· Programme for Non-Roman Catholic Mentally Handicapped Children in·.the Province of Quebec. 1952 • • Report of a Committee of the Montreal Council of Social ----~x-g-encies. Being the Findings of a Social and Financial Survey of Protestant and Non-Sectarian Agencies of an Undenominational Character in the City of Montreal. Montreal: 1919 • • Report of Committee Re: Gare of Mental Defectives. --...,Ar-p-ri 1 , 194 2 • • A Study of the Children's Division of the Montreal ----~c-o-uncil of Social Agencies. Being a report submitted by the Child Welfare League of America, 1924. ------· The Commentator. Vol.9, No.l, April, 1957. Young Men's Section of the Montreal Board of Trade. Report of the Special Committee for the Study of Facilities for Mentally Handicapped Children. Montreal: 1956. Welfare Federation. Annual Reports.

Unpublished Material

Aiken, Dorothy. "The Role of the Montreal Council of Social Agencies in the Establishment of Public Assistance." Unpublished Master's Thesis, School of Social Service Administration, University of Chicago, 1950. Garigue, Philip. "Change and Continuity in Rural French-Canada." Unpublished M.S. McGill University: 1957. Martin, Jean Marie. "Le Development des Federations/ d'Oeuvres et des Services Sociaux dans la Province de Québec." Address delivered by the Dean of the Faculty of Social Sciences at Laval University at the Mid-Winter Conference of the Canadian Welfare Council--Chests and Councils Division. Quebec: Jan. 17, 1957. - 157 -

Montreal Council of Social Agencies. "Bound Minutes." 33 Vols., 1918-1956 inclusive. ----· "Committee Minutes." Morel, Marguerite. "Marguerite Bourgeoys et le Service Social." Unpublished and undated M.S. Archives of the Centre Marguerite­ Bourgeoys, Montreal. Prince, Ellen. "A History of the John Howard Society of Quebec." Unpublished Master's Thesis, School of Social Work, McGill University, Montreal: 1956. Welfare Federation. "Bound Minutes." Vol.l, 1922.