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\ PUBLIC SERVICE \
Vol. 39, No. 10 OCTOBER, 1960
AFRICA - The Girouard Story
Bill C·77- Part One
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Barnes - - - 17 ------·- ______20 News a I a carte ____ ------ -----·----- ______------______·------20 New Men1hers ______------____ -- - The Professional Institute of the Public Service of Canada is an organization of professional and scientific workers in the Federal Public Service devoted to enhancing the value of the Service to the public, maintaining high professional standards and promoting the welfare of its members. Address all correspondence, advertising, editorial or otherwise, to the Professional Institute of the Public Service of Canada, 200 Cooper Street, Ottawa 4, Canada. Views expressed in articles and other contributions are those of the authors and do not necessarily represent the official position of the Institute. Articles may be reproduced without permission provided a credit is given to the source. Authorized as second class mail, Post Office Department, Ottawa. 1 Professional Public Service at all times welcomes contributions describing the life and work of Canadian professional public servants. The article published here is the story of a Canadian professional public servant-a Canadian and a professional but not a member of the Canadian Public SeTvice. Its publication at this paTticular time is most appropriate, coinciding as it does with the attaining of independence by Nigeria, the country in which the subject of the article performed an outstanding job of public service. The author, G. G. M. Carr-Harris, M.M.E . (C ornell), F.l.Inf.Sc., A.M.!. Mech.E., Mem.A.S.M.E., is a member of the National Research Council Group of the PTofessional Institute, of which he was Ad visory Council Representative for 1957-58 and Chairman for two teTms , 1958-59 and 1959-60.-Editor. C.C.M. CARR-HARRIS AFRICA- Much has been said, and no doubt will continue to be said, with good reason about the late E.P.C. Girouard's connection with railways. Not enough, however, has been said about his success in the field of political administration, namely in Nigeria and Kenya. If somewhat more space is devoted here to this side of his career, it is because public attention has been focused lately on both these countries, particularly Nigeria, which has .iust assumed independent status within the Commonwealth. It was never my privilege to know Sir Percy GirouaTd but I can recall hearing of him as far back as I can remember. Unless otherwise mentioned, all quota tions in the notes that follow are taken from a "Memoir" written by a brother officer, Major-General H. L. Pritchard, C.B., C.M. G., D.S.O., a year after SiT Percy's death (R.E. Journal, June 1933).-Author. 2 FEW CANADIANS have taken a more active part in the development of Africa than the late E. P. C. Girouard. One of the very early graduates of the Royal Military College at Kingston, he chose an army career and became a legend ary figure in the Corps to which he belonged. His name appears repeatedly in four of the eight volumes covering the history of the Royal Engineers. It is not altogether without precedent that French speaking Canadians are in Africa today on communication work. More than fifty years ago Girouard, as a young man, was engaged in the same role. Time has not dealt too kindly with the memory of his generation, and many of the events about to be described have been forgotten in the wake of two world wars. Nevertheless, his early contribu tion to the welfare of certain African peoples calls for special recognition at this time. Consider only briefly the public appointments that he held up to the time of his retirement at the age of 45. From 1909-12 he was Governor of British East Africa (now Kenya). For two years previously he was High Commissioner and Commander-in-Chief of Northern Nigeria. Historians tell us that his wisdom in handling critical problems in both these areas earned him the respect of natives and . whites alike. From 1899-1904 he was m South Africa, first in a military capacity as THE GIROUARD STORY By G. G. M. Carr-Harris Director of Railways in the Boer War, and subsequently in a civilian capacity as Com missioner of Railways in the Transvaal and Orange River Colony. For his services in South Africa he was knighted at the age of 34. From 1896-98 he was in Egypt and, as Lieutenant Girouard, R.E., displayed such remarkable genius in building and op erating a railway through the desert that he has been credited very largely with the success of Kitchener's campaign in the Sou dan. Following this military assignment, he was appointed President of the Egyptian State Railways by the British Foreign Of fice. Here he was entrusted with the re sponsibility of putting a derelict railway system into workable shape, and to this day many of the financial benefits which that Sir Percy Girouard when Governor of what is now country enjoys are due to the engineering Kenya. and administrative policies that he initiated. Edouard Percy Cranwill Girouard was born in Montreal on January 26, 1867. He was the lineal descendent of Antoine Girouard, scion of a family from Auvergne in France who came to Canada in 1720 as Private Secretary to Governor de Ramezy. His father, Desire Girouard (1836-1911), was prominent in public life, being elected 3 THE GIROUARD SUMMER HOME, "QUATRE VENTS", DORVAL, LAC ST. LOUIS. a member of parliament in 1878, a post which he held for 17 years; subsequently he served for 16 years as one of the Judges of the Supreme Court of Canada. His mother, Essie Cranwill, was the daughter of Joseph Cranwill of Ballynamoney, County Wexford, Ireland; she was brought out to the United States when she was six months old. His father, Judge Girouard, was the author of several books. The photograph reproduced here showing the family's summer home, "Quatre Vents," is taken from a book of his dealing with the history of the Girouard family•. Very little is known about Percy Girouard's early life. His mother died when he was twelve years old and he received his early education at a religious Seminary in Three Rivers. At the age of fifteen and a half, Percy entered the Royal Military College and it was undoubtedly his father's intention that this was pre liminary to his going into law. A cadet of the Royal Military College in those days would have attracted a good deal of attention in Montreal. Socially, young Girouard must have met many charming members of the fair sex, both French and English, anyone of whom might have persuaded him to follow in his father's footsteps and settle down to the legal profession in Montreal. However, we are toldt that his holidays at home were not always happy ones, especially when his father learned that he had no intention to become a lawyer. Whether it was at this time or at a later date thar he met Kathleen Gunn, daughter of Alexander Gunn of Kingstont, is not known. Certain it is that he fell in love with her, as an extract from a letter by one who knew much about him serves to show: "About Percy I know of his love for Kathleen Gunn who died. •L'Album de La Famille Girouard, 1651-1906, published privately in 1906. (Public Archives, Ottawa) tPritchard, RE Journal, 1933. tSaid to be the only MP who ever defeated Sir John A. Macdonald at the polls. 4 He always visited her grave when he came to Canada." Is it possible that this early tragedy in his life played a part in moulding his character and strengthening his determination to be master of his destiny? By one of those curious accidents of chance it so happened that, on the very day Girouard was attested and took the oath of allegiance at Kingston, the historic battle of Tel-el-Kebir was being fought in Egypt (13th September 1882). Little did he know that this event was to set in motion a chain of circumstances which was to lead to his successful career some fifteen years later. In his last two years at Kingston Girouard obtained top marks in his class of nine. However, he was handicapped academically when he first came in, and his marks for the whole four years entitled him only to fourth place when he was graduated. His graduation certificate describes him as five foot eight and a half inches in height with fair hair and blue ·eyes. It shows that he obtained a "Pass" in all subjects except French, Geology, and Civil Engineering, and in these he is shown as "Distinguished". Concerning this latter subject, it may be of interest to mention that 20 per cent of the total marks obtainable by a cadet during the four year course were given for Civil Engineering. The difficulties at home came to a head when his father learned of his ambition to obtain a commission in the army. Out of deference to his father's wishes, there fore, he refused at least two offers of a commission and on leaving Kingston took up an engineering post with the Canadian Pacific Railway. It was during this assignment, and two years after he had left the Royal Military College, that a limited number of commissions in the Royal Engineers were offered to graduates within a certain age. By this time Girouard was convinced that it was a mistake to pass up a career for which he was fitted. He applied and was accepted. No special comment is called for in connection with the two years he spent with the Canadian Pacific Railway except to mention that he was a junior engineer employed on the construction of a branch line in the State of Maine. It was pro bably at the little town of Grenville, where he was stationed early in 1888, that he accepted the commission offered him in the Royal Engineers. His father, being bitterly opposed to the decision, refused to help. We are told, however, that an aunt came to the rescue with a cheque sufficient to defray the costs of the journey and he reported at Chatham late in the summer of that year (1888). Unless one has lived in the great railway era of the last century, it is difficult to appreciate the importance attached to such work and Girouard's absorption in it. In his "Memoir" Pritchard describes it thus: Because railways were a prime factor in the opening up of new countries, because he was a born engineer by nature, because the best brains and the biggest men in Can ada and America were devoted to railway work, because his first executive appoint ment was on the C. P. R., railways always fired his imagination and absorbed his at tention. It was at the hands of Mr. Collingwood Schreiber, Chief Engineer and General Manager of the Canadian Pacific Railway, that Girouard received his first profes sional appointment. It was the Professor of Civil Engineering at the Military College, who had been an associate of Schreiber's, who first recognized Girouard's natural aptitude for engineering. Chatham, Woolwich and the Soudan ( 1888-99) Girouard's success in dealing with men, in getting things done and in com manding respect generally from those with whom he came in contact can be at tributed in large measure to his military and engineering training at the Royal Military College. These were yet other qualities which accounted for his success and we catch a glimpse of these in the following note by Pritchard: 5 He had a superabundant vitality, which served him well throughout his life and even fought and often triumphed over the bad health from which he suffered in the last few years. It gave him a joie de vivre which made him always the best of company. The original bent of his imaginative mind caused him to approach every task from an original point of view. He was, therefore, no ordinary young officer and immediately attracted attention. On leaving Chatham his previous experience on the C. P. R. caused him to be posted on 1st July, 1890, to be Traffic Manager of the Railways within the Royal Arsenal, Woolwich, an appointment which he held for five years. One can well imagine the limited future which such a post suggested to an ambitious Canadian. In short order Girouard had the railway problem under control at Woolwich and with time on his hands he took the opportunity of writing an original article, which was published as early as 1891 in the Journal of the Royal United Services Institute. In this, he advocated the construction of a circular railway for the military defences of England and Scotland. He envisaged the use of armoured trains to be used with mobile coast defence guns. The idea was not very practical, but it served to draw attention to the fact that a Canadian Sapper officer named Girouard was in the railway business and had original ideas. While stationed at Woolwich, Girouard frequently visited theRE Headquarters Mess at Chatham, and we are told that he was particularly in request on guest nights to sing "Alouette", which caused his audience to join heartily in the chorus. For some time, events in the Egyptian Soudan had been viewed with growing concern in Britain. In 1895 the whole area was in the hands of Arab dervishes and hostile forces were threatening the borders of Egypt. With a view to safeguarding her interests in the Suez canal, Britain had been backing Egypt with men and money. It was in that year, therefore, that Sir Herbert Kitchener, Sirdar (Commander-in Chief) of the Egyptian army, was ordered to occupy the Soudan. Kitchener well knew that the success of such a task would depend on satis factory rail communication. He had the knack of finding out good men and, as a Sapper officer himself, he had heard of Lieut. Girouard. Early in 1896 Girouard was posted to Egypt and was immediately appointed Director of Railways in the Egyptian Army. "The progress of the railway was to regulate the pace of the advance which would be made in bounds, followed by halts to bring up the railway ... (Kitch ener) intended, however, that the pace of construction should be phenomenal ... It was!" In the space of two years, much of it in blistering heat and across a desert country, some 588 miles of railway were built and put into operation to support Kitchener's campaign. When it is remembered that Wady Haifa, where the line commenced, was several hundred miles from the Egyptian railway system, 1,000 miles from the sea, and far removed from any adequate source of supply of railway material, the magnitude of this task is at once apparent. W ady Haifa on Egypt's southern border was linked to the Egyptian railways by a modest line built previously. A limited number of derelict locomotives badly in need of repair were lying in sidings, where a few railway wagons were rotting. A few miles of rails, but no sleep ers or fishplates, were to be found in the desert where they had been abandoned in the retreat of 1885. The local resources of Egypt were combed to rush up to Wady Haifa the minimum requirements for a railway. A Railway Battalion of Egyptians of all ranks, completely innocent of any railway or other engineering experience, was im provised. Five R. E. subalterns were allotted to help the Director of Railways. It was from such beginnings that Girouard rapidly built up an efficient railway organ ization. 6 Up to that time there were no Manuals on Military railways, nor had the sub ject received much attention at the War Office. What Girouard accomplished, therefore, he did from scratch, based largely on his Canadian training and experience coupled with his study of the railway problems that arose in the Franco-Prussian War (1870) and the American Civil War (1861-5). Incidentally, historians tell us that, in the latter war, engineers with the Northern Armies had become so skill ful that they could build railway bridges "just about as fast as a dog could trot." One of the factors in Girouard's successful career was the way he planned things to the smallest detail. Although only a subaltern 29 years of age he made it clear to Kitchener that "there must be a brief period for careful preparation, for the working out of an estimate and a detailed indent for the thousand and one items required " for such work. With many admonitions to be economical, as the straitened Treasury of Egypt had to meet the bill, Girouard and his assistants sat down to the task of thinking out what was required, of specification, of indent and of estimate. He took a bold line. Realizing that a great deal of the trainload must be water tanks for the loco motives, it was obvious to him that trainloads must be large, and therefore locomo tives heavy and powerful. Contrary to some expert advice, he followed American and Canadian practice in adopting a high ratio between axle load and weight of rail, "but well-sleepered." Unfortunately, it is not possible to discuss in any detail the engineering as pects of this campaign, nor is it necessary to trace the military operations that went hand in hand with the construction of the railway. Suffice it to say that Kitchener had 26,000 men in the field, based almost entirely on this line of communication and towards the close of the campaign a delivery amounting to 10,000 tons of stores a day was called for. In commenting upon tlus venture Pritchard mentions that its success "was due entirely to the 'drive', the knowledge, the resource and the indominable perserver ance of Girouard in the face of great difficulties in a very trying climate ... He was the personification of cheerfulness, obviously enjoying the mastering of every difficulty. He inspired the greatest enthusiasm, confidence, loyalty, and affection in all his subordinates, British and Egyptian... He was a man after Kitchener's own heart. There was mutual sympathy and understanding between the two men - Girouard, with his strong sense of humour - was on terms with the Sirdar that astonished men who stood in awe of that reputedly stern man." With the battle of Omdurman, which took place opposite Khartoum in the closing months of 1898, the war came to an end. Girouard, however, had been offered the appointment of President of the Egyptian State Railways, a post which he occupied in June of that year. For his work in the Soudan he received the D.S.O. "President, Egyptian State Railways and Alexandria Harbour" Through the incompetence of successive adnunistrations, civilian affairs in Egypt had been going from bad to worse. With some financia1 aid from Britain, the Egyptian Army under Kitchener had recaptured the Soudan and it now re mained to put Egypt on a sound economic footing. This task had been entrusted to Lord Cromer, who had been sent out by the British Foreign Office, and it was he who asked for, and secured, the services of Girouard. Up to that time the transportation system, which was capable of stimulating the prosperity of the country, "had been starved into bare existence." Girouard's first care was to make a thorough inspection of the 1,200 miles of line including the various railway departments and the Port of Alexandria. He found more than 10 per cent of the permanent way definitely dangerous and many 7 GIROUARD'S "SWITCHBACK" - The unforgettable Modder River deviation. more miles in thoroughly bad shape. Operating equipment, maintenance facilities, and traffic working generally were primitive in the extreme. In the country where gradients were practically negligible it was evident that heavier locomotives and heavier rolling stock could be used to advantage. This meant, of course, that much of the system would have to be reconstructed and heavier bridges put in, not to mention the necessary improvements to shipping fa cilities and docks. This program clearly called for sizeable capital expenditures, not only for the railways, but also for the Port of Alexandria. Fortunately, Lord Cromer, who had considerable influence, backed the plan, and the money was forthcoming. Al though the work took five years to complete, the transportation system was put on a sound footing, train loads being increased from 500 to 1,200 tons. In May 1899 Girouard found it necessary to visit America and England in con nection with certain contracts for the Egyptian State Railways. At this time, war in South Africa was imminent and we pass now to another chapter of his career. South Africa (1899-1904) The story of how he came to be interviewed in London by Lord W olseley and received the appointment of Director of Military Railways in the Boer War is told in detail by Pritchard. It is sufficient to note here that on the outbreak of war he was at work at the War Office with a small staff, mostly subalterns who had served him in the Soudan. 8 In taking over this assignment Girouard found that the transportation problem in South Africa had been seriously underestimated. In this connection it may be of interest to quote the following•: He demanded a staff of eight R. E. officers, the addition of four Fortress Com panies, and a first allotment of £100,000 for the purchase of railway and engineering stores and material. He also suggested that a cable should be sent to South Africa ordering that any British employees who left their employment on the railways of the Boer Republic should be taken into pay at once and placed at his disposal. These de mands were granted after a sharp but short struggle with the War Office and Finance branches, during which the help of the C.-in-C. and the Sec�etary of State himself had been obtained on the side of the new Director. Girouard arrived at Cape Town in November with the local rank of Lieut.-Colonel, and a letter of credit on the Command Paymaster at Cape Town for £1 million. The following extracts taken from the 1906 Proceedings of the RMC Club (p. 110-1) are worthy of record: The repairs to railways in South Africa and the military control of all railways upon which the army depended, fell to Lieutenant�Colonel Girouard as his share of the work in the great struggle. Applying his mind to the task before him, he evolved order from chaos, and gave the Army a railway service, second to none in the history of campaigns. He ordered duplicates of all the bridges likely to be blown up by the Boers before they had ever reached the neighborhood in which the bridges stood, so that when the bridges were eventually destroyed all the material was at hand to commence their re construction. Another of his successes was in the construction of "deviations," some •History of tbe Corps of Royal Engineers, Vol. IV, p. 266-7. ANOTHER "DEVIATION" - Bethune Bridge, Orange River Colony, showing the break and the "deviation". 9 of them two or three miles in length, to take the place of bridges destroyed by the enemy. In 1900, his services were rewarded with the K.C.M.G., and during the course of the war he was repeatedly mentioned in despatches. On the cessation of hostilities, Sir Percy Girouard remained with Lord Milner through the trying period of the re construction of the lines of the two ex-republics, being appointed on July 1, 1902, Commissioner of Railways in the Transvaal and Orange River Colony; he also acted as Chief of the Staff to the Colonial-Defence Division and as Administrator of Military Law in Cape Colony. As mentioned earlier, one of the secrets of Girouard's success was his imagin ative turn of mind and his unconventional approach to many engineering problems. This is brought out in the following account by Lt-Col. G. S. Everson published during the war (RMC Proceedings, 1901, p. 74-5) •. In speaking of his experience in going over one of the deviations mentioned above he says: Those who crossed the Modder River on his "Switchback" had an experience they will not soon forget. From the banks a hundred feet high the train rushed down to the bed of the river and up again on the other side. I had the eX'perience of being on the first passenger train which was sent over this novel road. It was quite a gamble as to whether one would reach the other side in safety. So far I have heard no acci dent has occurred. Because Girouard's engineering achievements attracted a good deal of attention at the time, his less sensational but equally important contribution on the administra tive and operating side has been largely overlooked. During the war, for instance, he established under his orders on the South African railways a special military staff of Assistant-Directors, Deputy-Assistant Directors, and Railways Staff Officers (R.S.O.'s) who acted as the sole channel of communication between the army and the railway technical staff and vice-versa. Two official volumes have been written on The History of the Railways during the War in South Africa ( 1903) and to these the attention of the reader is invited for further details. It can be said without fear of contradiction that nowhere in the annals of the British Army up to that time was there an instance where a Lieut. Colonel earned the K.C.M.G. by merit alone at the age of 34. It is significant, also, that he received this honour nearly two years before hostilities were officially over. Northern Nigeria 1907-9 Girouard gave up his appointment in South Africa in 1904 and returned to regimental duty in England. He did not, however, return alone. On September 10, 1903 he had married Mary Gwendolen Solomon, only daughter of Sir Richard Solomon, who was then Attorney-General for the Transvaal Government. For the next four years Girouard held several staff appointments and probably enjoyed a much needed rest. At this point, however, Mr. Winston Churchill entered the picture. In 1907, Churchill was Under-Secretary of State for the Colonies. As a war correspondent previously in South Africa, he had met Girouard and knew all about his railway reputation. Churchill sent for Girouard early in 1907 to ask his advice about certain problems which had to do with a proposed railway in Northern Nigeria. Many conflicting opinions had been expressed by experts on the engine ering side and Churchill intimated that he wanted only one opinion and that was · Girouard's. Girouard took away the files and was very soon back in the office of the Under Secretary with all the points in the case at his fingers' ends. As regards the route to be followed, he declined to express an opinion without �veiling over the country, but after dealing with several engineering aspects of the "Reprinted from the United Services Gazette, Aug. lOth, 1901. 10 question, and giving decided opinions upon them, he pointed out that the engineering aspect was perhaps the easiest part of the problem. From the point of view of the administration of the country, the advent of a railway in a territory entirely devoid of railways raised numerous knotty problems. The supply and conditions of labour, rates of wages, disturbance of existing transport systems, rates for traffic, acquisition of land, etc. - a long list of other headings. At that moment it occurred to Mr. Winston Churchill that, by a fortunate chance, a vacancy had just occurred in the post of High Commissioner (later called Governor) of Northern Nigeria. He offered the appointment to Girouard and promised him a free hand to deal with the railway question as he thought best. He promised to back Girouard's opin ions and to find the money. Here again was work worthy of Girouard's capacity and entirely suited to his temperament: more development of a new country and pioneer ing work: supreme command in a new territory and a free hand. In February, 1907, the new High Commissioner and C.-in-C. of Northern Nigeria embarked to take over his kingdom. It was not the intention that the appointment should be any other than a tem porary one and Girouard spent only two years in Nigeria. Churchill's objective, of course, was to give that country a satisfactory railway system. . The most urgent requirement was to establish communication from the in terior to the sea. Girouard decided therefore to locate a line northwards from Baro on the navigable waters of the lower Niger to Kano, in the far interior. He personally took part in the reconnaissance for this line and selected a route which differed considerably from those previously suggested. Here was country entirely different to that in South Africa or the Soudan. Nevertheless, this first link, 366 miles in length, was completed in record time at a cost of only £3,300 a mile. Soon after his arrival, Girouard made certain appointments that enabled him to hand over responsibility for the railway to a suitable staff, over which he appointed, as Director, a Mr. Eaglesome (later Sir John Eaglesome). Branch lines were com menced and built between Kano and the existing line to Lagos, and also to Port Harcourt at the mouth of the Niger. As in the case of Egypt, Girouard remained only long enough in the country to see his program successfully launched. With the completion of the line to Kano in 1911 a great increase in trade grew up with the northern territories and when the remainder of the system was finally put into operation the whole country entered upon an era of prosperity. Years afterwar·ds Sir John Eaglesome said of Girouard's tenure of office in Nigeria: The problem before him was how to organize this vast Protectorate, which, added to Southern Nigeria, is about a third the size of India, to equip and train a military force, to open out communications and establish medical services, posts and telegraphs. Much of Girouard's success was due to his wise choice of the men he employed, and he had an excellent custom of living in a Mess with his small staff so that he was always accessible to information and the opinions of everybody he met. Many of his ideas were novel and to a Colonial staff radical. He proceeded in his own way, ignor ing precedent. As indicated elsewhere, it is not entirely in the engineering field that Girouard's name will be coupled with the prosperity which that country has en joyed over haif a century. If one turns to the pages of the Encyclopaedia Britan nica, for instance, one finds it recorded: "Sir Percy Girouard gave much attention to land tenure, probably the most important of administrative problem in West Africa"•. Soon after his arrival he submitted his recommendations in this matter to London and a committee was formed to study the whole question. The follow ing is quoted from the same source: •Encyclopaedia Britannica, 1950, Vol. 16, p. 444. 11 After hearing much evidence (the Committee) issued a report in April, 1910 in substantial agreement with his recommendations. This policy was adopted by the Colonial Office and the natives of Nigeria were secured in the possession of their land. The exclusion of the European land speculator and denial of the right to buy and sell land and of freehold tenure was held by all the authorities to be essential for the moral and material welfare of the inhabitants of a land where the duty of the white man is mainly that of administration and his material advantages lie in trade. It would be beyond the scope of these notes to repeat all the tributes that have been paid to Girouard in connection with his Nigerian post. It seems de sirable, however, to place the following on record. In the Dictionary of National Biography (1913-40, p. 342-3), we read: The railway has been a governing factor in the development of Nigeria and has been described as "the cheapest, most rapid, and in every way, the most satisfactory line in tropical Africa" (Lord Lugard in The Dual Mandate in British Tropical Africa, p. 448). Girouard took a keen interest in the conditions of land tenure in Northern Nigeria and it was due to his initiative that the Northern igeria lands com mittee was constituted in 1908, followed by legislation which virtually nationalized the lands of Northern Nigeria and provided a model for land policy in other African territories. These principles are well summarized by him in the 1909-10 Colonial Re port for the British East African Protectorate. Historically, Girouard's jurisdiction in Northern Nigeria marked the end of a pioneering and the beginning of a development period. From the official record of that day it may be instructive to quote what he had to say about the administra tion of this vast area of 250,000 square miles•: The most important question of policy was that of our attitude toward the Native rulers. The condition of Native administration varies very much. It can be seen at its best in some of the Mohammedan States, at its very lowest in the primitive Pagan and •colonial Office Blue Book 1907-08, p. 41. MOUNTAIN MEMORIAL - A mountain at Banff was named for Sir Percy Girouard. Mount Girouard is the peak at the right of this picture taken from the Banff Springs Hotel. 12 cannibal communities. In the Mohammedan States one ruler frequently is found deal ing with the affairs of from 100,000 to 2,000,000 people. It cannot be denied that the administration here is primitive and at times oppressive, but it is nevertheless traditional. Without its presence it would have been quite impossible to administer the country. The whole result is that the Mohammedan States are to-day safe to travel over un escorted in any direction. In the Pagan districts the conditions vary greatly from a collection of tribes with a paramount chief to small communities of troglodytes and cannibals. For the future every endeavour will be made to combine peoples of similar race and language under paramount chiefs of their own choosing and to stamp out the internal conflicts which were depleting their numbers even more rapidly than slave raiding. On relinquishing his appointment to become Governor of British East Africa, he is reported* to have said, at a farewell dinner: It had never been the object of himself or of his predecessor, Sir Frederick Lugard, to obtain revenues which were not legitimately due, both to the native Governments and to the Central Government, by the people, whose rights and interests they felt them selves bound to look after. They regarded themselves, whether Governors, Adminis trators or Residents, as trustees for the natives, and he believed that that ideal had been faithfully carried out. There was need of patience in dealing with the natives. If they attempted to frog-march those people over bridges of centuries in a few short years, we should lose, he would not call it loyalty, for that was not a word which was applicable to the case, but the affection which we ought certainly to gain. Undoubtedly, Churchill must be credited for his astuteness in selecting the right man for what he saw was an important post. It is evident, however, that it was not only as an engineer but also as an "ambassador of goodwill" that Sir Percy justified the confidence placed in him. British East Africa (1909-12) One must turn again to the pages of history to fully appreciate Sir Percy's contributions, in British East Africa. From Sir James Hayes Sadler he took over the appointment of "Governor and Commander-in-Chief, East Africa Protectorate" in 1909. Later known as Kenya, it had been transferred from the Foreign to the Colonial Office in 1905. At that time the influx of whites and also Indians had reached such proportions that serious troubles had arisen between them and the natives which the administra tion was called upon to settle. As an authorityt puts it: The administration, on behalf of the natives, enforced as early as 1907, regulations which the white settlers regarded as irksome. Hence arose much friction. Meanwhile the Indian population grew in importance; the census of 1911 showed that there were 11,886 Asiatic in the country as against 3175 Europeans. Sir Percy Girouard (1909-12) achieved the somewhat difficult task of working harmoniously with the settlers whose grievances then were chiefly over the delay in getting land grants, but who were al ready beginning to claim a share in the Government. Somewhat more forthright is the following account from a book by Lord Cranworth, Profit and Sport in British East Africa; speaking of Sir Percy Girouard, he says: His wide sympathy, broad views and courageous policy cut many of the bonds which had bade fair to strangle the country at its birth, and she was started in a career of prosperity from which she is never likely to look back. During his reign the views of all classes received careful consideration, communi cations were improved, labour was provided in quality and quantity to the satisfaction of white and native alike, and the previous attitude of entire subservience to the Colonial Office received a considerable check. Sir Percy Girouard left a name which grows *Proceedings RMC Club, 1909, p. 165-6. tEncyclopaedia Britannica, 1950, Vol. 13, p. 344. 13 increasingly bright as time goes on; and many of those who did not always see eye to eye with his policy have found that time and reflection prove that they themselves were in the wrong. To form some idea of the admiration in which he was held one should read the many testimonials that were published in the press when he relinquished his appointment. Some of these will be found in Pritchard's "Memoir," from which the following is taken: The Treasurer in his Government, who became later a very distinguished Colonial Governor, writes as follows: "Two matters occur to me as being of special importance. The first is his con duct of the financial affairs of the Protectorate with which, as I was Treasurer at the time, I was closely associated. Sir Percy speedily realized the importance of getting away from Imperial 'Treasury control'. When he took over the Government the budget was balanced by means of a grant-in-aid from Imperial funds, and because of this the Imperial Treasury insisted on maintaining the closest supervision over the finances of the Protectorate. The annual estimates had to be approved in detail by the Imperial Treasury as well as by the Colonial Office, no new appointment or re vision of salaries were possible without Treasury consent, and this all meant vexatious delay in getting anything done which involved the spending of any sum of money however small. Sir Percy overhauled the estimates of each Department in the minut est detail and explored every possible source of revenue with the result that before his retirement in 1912 he had been able to present balanced budgets, abolish the grants-in aid and to adjust the Protectorate's finances so that the Imperial Treasury was elimi nated as a controlling factor. "This was a great achievement, and the way in which he carried out his investiga tions and the remarkable quickness with which he appreciated the position and spotted where economies could be effected without loss of efficiency was a constant source of admiration to myself and my staff. "The second big thing for which he was responsible was the move of the Masai from Laikipia and the Northern Reserve to the Southern Masai Reserve. This move was not only most beneficial to the Masai themselves by bringing them together and strengthening the tribal authority of the chiefs, but also opened up for beneficial de velopment by Europeans a very large area of land which had been most wastefully used for grazing cattle." Sir Percy was deeply interested in the scheme and kept in touch with the progress of events. The move went off without a hitch, and he was himself responsible for the main part of the arrangements, having drawn up his scheme before he went on leave. Socially he was a delightful host with a keen sense of humour. He was deeply interested in the social life of the Protectorate and took part in many forms of sport. Apparently, he gave a trophy to be competed for in Soccer football and the "Girouard Cup" is probably still a feature of that game in Kenya to-day. Retirement and Epilogue By this time Girouard had served in the North, the South, the West and the East of what was then known as the "Dark Continent''. His wisdom and foresight in the handling of problems there are evident in this statement of his quoted only last month in an American magazine•: "If we allow the tribal authority to be ignored or broken, it will mean that we ... shall be obliged to deal with a rabble, with thousands of persons in a savage or semisavage state, all acting on their own impulses and making themselves a danger to society generally." As mentioned at the outset, it was the purpose of these notes to trace only the career of this distinguished Canadian up to the date of his retirement from the Army. This coincided with his resignation as Governor in East Africa in July *"The Hopeful Launching of a Proud and Free Nigeria". Life, September 26, 1960. 14 RTS or THE INCDOM ,... FIRST WORLD WAR - Sir Percy Girouard is shown at the left of King George V while on tour of munition plants during the 1914-18 war. 1912. At that time Lady Girouard was prevented from spending much time at Government House in Nairobi due to her health. There was also the schooling of his son• to consider. Moreover, in spite of his own abundant vitality and his disregard of the African climate, the latter had not disregarded him: He had little private income to supplement the pay which barely sufficed to meet the heavy expenses of the important posts which he had held. At Armstrongs he would have a chance to build up some provision for his family. On his retirement, Sir Percy became Managing Director of Armstrongs, one of the largest armament firms in England. With the outbreak of War in August 1914 he was immediately called to the War Office in an advisory capacity but re turned soon afterwards to guide the operations of that firm in providing the mu nitions of war. During his tenure of office it was decided to establish a branch in Canada (Armstrong-Whitworth of Canada, Longueuil, Que.) and he was named President. In due course, he retired into private life and spent the rest of his years in England. He died in London on September 26, 1932 at the age of 65. Sir Percy Girouard never ceased to regard himself as a Canadian. While oc cupying the post of Assistant to the British Minister of Munitions, at a meeting in Cardiff on June 11, 1915, Girouard said: I stand as a British subject, and French-Canadian. My forefathers resided in Can ada for 250 years. We have enjoyed under the British flag the Roman Catholic re- "Richard Desire, an only son, survives in England. 15 PHOTO CREDITS The photographs on pages 3 and 15 are reproduced from photographs in the Public Archives of Canada that were presented to the Archives by Miss Virginia Cranwill Skynner of Winnipeg, Sir Percy Girouard's niece. The photograph of Sir Percy on page 16 was provided by Miss Skynner. The photograph on page 4 is reproduced from "L'Album de }a Famille Girouard". The pictures of Boer War Bridges (pages 8 and 9) were made available by the Engine ering Institute of Canada. The picture of Mount Girouard (page 12) is a Canadian Pacific photo. The photograph of Mr. Shenstone (page 20) is by the Department of Mines and Technical Surveys and that of Mr. Baird (page 20) by the Department ·of Agricul ture. SIR PERCY GIROUARD Photographed two years before his death. The monocle was not an affectation. Sir Percy suffered a defect in his left eye. ligion the French language, the old Napoleonic and pre-Napoleonic law without hin drance and with great tolerance. Is it any wonder the French-Canadians feel what it would mean to them and to the Empire as a whole and to the whole world, if anything occurred to upset the equilibrium of the Empire?" This is the story of a man who left behind him a record in the Public Service which it is hard to equal. It is a record that can scarcely fail to be a matter of pride and inspiration to Canadians no matter where they find themselves in the world today. *Canadian Annual Review, 1915. Statistics on Group Surgical-Medical Insurance Plan At August 1, a total of 122,825 members of (1,206 of 1,350); Yukon-N.W.T., 84 per cent the Public Service had enrolled in the Group (1,640 of 1,950); British Columbia, 80 per cent Surgical-Medical Insurance Plan, it is shown (17,991 of 22,350); Ontario, ·73 per cent (76,847 in a statistical report just issued. The estimated of 105 ,000); Alberta, 70 per cent (10,985 of number eligible is 168,000. 15,650); Saskatchewan, 53 per cent (3,652 of 122,825 40,907 Of the who have enrolled, 6,950); Newfoundland, 51 per cent (1,825 of 23,684 were individual enrolments, were em- 3,600); Manitoba, 43 per cent (6,263 of 14,450); 58,234 ployees with one dependent, and were outside Canada, 36 per cent (4,275 of 11,950); pendent. employees with more than one de and Nova Scotia, 25 per cent (5,092 of 20,100). In addition, 48,354 members of the Royal Monthly premiums total $807,348.00, of Canadian Mounted Police and of the Armed 1. which $394,988.95 is paid by employees -and Forces had enrolled by August $412,359.05 In the distribution of actual enrolment as a by the Government. The Govern- 51.1 percentage of persons eligible, New Bruns- ment's share is per cent of the total month- 403 wick leads with 93 per cent (8,008 enroEed out ly premiums, per cent of the premiums 42.1 of 8,650 eligible). Quebec's percentage was for individual employees, per cent of the 92 (33,101 enrolled out of 36,000 eligible). premiums for employees with one dependent, The percentages of other provinces at Aug- and 55.2 per cent for employees with more ust 1 were: Prince Edward Island, 89 per cent than one dependent. 16 BILL C-77 jn jut Respecting the Civil Service of Canada PART ONE By L.W.C.S. Barnes, 2nd Vice-President, and Chairman of the Legislation Committee The famous military ceremony of Trooping the Colour had a practical and non-spectacular origin. Its roots can be traced back to an old custom of displaying the regimental colours prior to an expected action. Friendly forces involved in the subsequent engagement were thus quite dear as to the symbols under which they were striving and to which they should rally. The Professional Institute is now involved in the study of a piece of proposed legislation which will be of vital importance to the efficiency and well-being of the Public Service of Canada for many years to come. Bill C77, "An Act Respect ing the Civil Service of Canada," is scheduled to form the basis of legislation that may possibly become law before the end of the next session of Parliament. The relevant committees and the Board of Directors of the Institute are pre paring to put forward the beliefs and policy of the membership, as expres:ed and approved through our democratic structure. The assembled views will be advanced by all appropriate means at our disposal during the various stages of the legislative procedure. Our proposals may well meet opposition, both informed and uninformed, and may be subjected to carefully prepared intellectual counter-attacks and to the assault of those vagrant opinions without visible means of support, commonly known as prejudice. It is well that we should pause momentarily in our prepara tion for the effort ahead and troop the colour of our beliefs. The Act resulting from Bill C77 and the Regulations to be issued under its authority will be widely embracing. The form and structure of the Public Service could be as much affected as could the day-to-day conditions of employment of the individual civil servant. Both the principles and the details involved are being studied and it is hoped that clear and precise statements of Institute policy on the many aspects involved will be published or republished in the months ahead. It is perhaps fitting that the first subject on which we should state our position is that concerning the desirable relationship between the employees of the Public Service, as represented by their staff associations, and their employers, the people of Can ada, as represented by the Federal Government. The significant proposals of Bill C77 with respect to future staff relations are contained in paragraph seven. The importance of this section demands that it be quoted in full: The Commission, and such members of the public service as the Minister of Finance may designate, shall from time to time consult with representatives of ap propriate organizations of employees whenever in the opinion of the Commission or the Minister of Finance, as the case may be, such consultation is necessary of desirable in the interests of the civil service or the Government. It is the opinion of the Institute that the procedure described in Bill C77 pro vides, at best, little more than a statutory confirmation of the presently existing and generally unsatisfactory situation. It is possible to interpret the paragraph in question as a potentially retrograde step which could further limit the initiative of the staff associations. 17 Constructive Alternative Having stated our disagreement with the proposals in the Bill, we must put for ward a considered and constructive alternative. Reference to published Institute policy statements and to the committee reports unanimously approved by the last two Annual General Meetings of the Institute will show that the views of the mem bership are quite unambiguous. The basic foundations of Institute polcy in this field may be summarized briefly as follows: (a) The recognition of staff associations with the right to negotiate on behalf of the classes which they represent. (b) The establishment of a formal system of negotiation between the appropri ate agency of Government and the recognized staff association. (c) The establishment of a formal system of arbitration. The findings of such a system to be binding on both sides and recognized in lieu of the right to strike. The significance of recognition is important in this respect, and the following quotation from the British Treasury handbook Staff Relations in the Civil Service is relevant: Recognition is a formal act and gives the association certain definite rights - the right to be brought into consultation by the employing authority on proposals affect ing the category of staff for which the recognition is granted, the right to be a party tv any formal agreement made on their conditions of service, and the right to go to arbitration, i.e. to the Civil Service Arbitration Tribunal, when agreement cannot be reached on a matter within the arbitrable field. It also involves the association in re sponsibilities to the extent to which, in the exercise of these rights, it makes itself a party to agreements and understanding. Th� Professional Institute believes that the Canadian public servant in this, the second half of the Twentieth Century, is entitled to negotiate with his employer on matters concerning his conditions of employment. This is neither more nor less than the right which has been enjoyed by the bulk of his fellow citizens and by the public servants of the advanced countries of the Commonwealth for decades. Arbitration is an essential long stop to any system of negotiation that does not include the ultimate sanctions of the strike and the lockout. Needless to say, the Institute considers these latter concepts utterly unacceptable from the viewpoints of both public responsibility and professional ethics. The exact form of negotiation and arbitration machinery should clearly be de signed to fit Canadian traditions and situations. The well-tried British Whitley Council approach is considered to be an obvious example worthy of continued study. The detailed administrative structure is,ohowever, of less importance than the acceptance of the underlying fundamentals. First among these are the rights of the recognized staff associations and the Government to negotiate in good faith, to enter into agreements and finally to invoke binding arbitration should this become necessary. Two Justifiable Questions Two very justifiable questions will undoubtably be asked many times during the corning months. Firstly, is a system of negotiation and arbitration for the Public Service compatible with a system of parliamentary democracy? Secondly, would such a system increase the efficiency of the Public Service? The answer to the first question is, fortunately, clearly demonstrable. Ne gotiation and arbitration in some form or other have long been operated on an effective basis in other Commonwealth countries where the pattern of parliamentary 18 democracy is equally as carefully guarded as in Cana;da. The systems that have been evolved over the years in countries such as Britain, Australia and New Zealand maintain the constitutional forms while retaining the significance of the procedures. A U.K. Treasury Circular issued thirty-five years ago contained the pledge "Sub ject to the over-riding authority of Parliament, the Government will give effect to the awards of the (Arbitration) Court". The official interpretation of this state ment given by the Treasury was that the Government would not itself propose to Parliament the rejection of an award once made, but the supremacy of the Parlia ment is preserved in its power to defeat the Government. Generally speaking, this solution appears to have been acceptable to both the British Civil Service and to the Mother of Parliaments over the intervening years. The Institute is convinced that an appropriate and equally satisfactory position could be arrived at in Canada. The answer to the second question is equally clearly to be seen in the experi ence of the public services of other countries where a modern pattern of staff re lations has been adopted. Typical of the supporting material which could be assembled is the following extract from an essay by Sir Thomas Padmore, for many years the Secretary of the British Treasury: The part played by staff consultation in the general running of the Civil Service is very big (we often find that it astonishes our friends in business and industry) and, to the great credit of the staff associations and their leaders, it goes at times well be yond looking after the interests of their members. In fact, I think it is true to say that that part of the constitution of the Civil Service National Whitley Council which in cludes among the objects of the Council the securing of increased efficiency in the public service, is by no means an empty formula. Even apart from this, staff consultation which is effective and is carried out in a spirit of co-operation can, by creating a fund of goodwill which flows from action by consent, contribute greatly to the maintenance and raising of general morale; on which in turn efficiency and output so greatly depend. These are perhaps platitudes. And it would be foolish to pretend that we are in sight of perfection in these matters, or, I dare say, ever shall be. But the Whitley system works - and pays more than re spectable dividends to all concerned. It is the belief of the Professional Institute that the setting up of a similar pat tern of staff relations for the Public Service of Canada would result in similar divi dends for both staff and employer. We are pledged to both "serve the State" and to advance the interest of our members. There can be few fields of Institute ac tivity that promise to further these dual ends so adequately as the determined effort that must be made to demonstrate the logic of this case before "An Act respecting the Civil Service of Canada" receives Royal Assent. Readers wishing to study t>he background to the Institute's position in further detail are referred to back numbers of Professional Public Service, in particular, those dated January 1958, July 1958, 'September 1958, October 1958, February 1959, April 1959 and April 1960. The Agnes J. MacLeod Memorial Library The library of the University of Alberta's new nursing building is to be named . . Memorial Libra ." . "The Agnes J. MacLeod � . . . Miss MacLeod, second woman to attam a v1ce-pres1dent1al posltlon m the Profes- August (PPS, Sept., P· 21). sional Institute, died in Ottawa in � . A graduate of the University o Alberta, she was the first D1rector of the University's Graduate School of Nursmg. 19 Peripatetic Professionals NEWS a ta e-a'tte,,, Miss Mildred I. Walker, a Director of the Honours and Awards Institute and Chairman of the Education Com D. A. Shenstone, an edito1· with the Editorial mittee, attended the 13th International Congress and Information Division, Department of Mines on Occupational Health in New York, where and Technical Surveys, was elected President she presented a paper, "Nursing Administration of the Ottawa Chapter, Canadian Industrial in Hospital Employee Health Programs." She Editors Association, at a meeting of the Chapter is Senior Nursing Consultant Occupational on September 19. Health Division, Department of National Appointments and Promotions Health and \Velfare. Dr. Gordon Marshall Ward, an active mem ber of the Professional Institute, has been Obituaries appointed to the Harrow Research Station, Alfred Briggs Baird, who retired from the Department of Agriculture, to carry out physi Department of Agriculture in 1956 after 44 ological and biochemical research on green years' service, died suddenly in Vermont last house crops. Dr. Ward, who has headed month at the age of 70 years. nutrition and metabolism research in the Physi He was one of the pioneers in Canada on the ology and Chemistry Section of the Plant Re use of beneficial insects against agricultural and search Institute at Ottawa, has served as the forest pests. He influenced development of ap Harrow Branch representative on Advisory Council since 1954. He was Secretary of the plied entomology in the department, and con Chemists Group, 1953-55; Vice-Chairman, 1955- tributed much to its recognition abroad. 56; and Chairman, 1956-57. In 1954-55 and again From 1929 to 1948, the period of greatest ex in 1958-59 he was a member of the Institute's pansion in this work, he was in charge of the Membership Committee. Dominion Parasite Laboratory at Belleville. D. A. SHENSTONE DR. G. M. WARD MILDRED WALKER A. B. BAIRD 25 New Members Administration Marchand, J. R. M., B.A., B.Sc., Electric Engineer, Bertram, F. Elizabeth, B.A., M.A., Personnel Man Dept. of National Defence, Ottawa. ager, National Film Board, Montreal. Fisheries Bryans, W. Harvey, B. A., Admin. Officer, Dept. of Swanshurg, Kenneth B., B.Sc., Technical Officer, Citizenship and Immigration, London, Ont. Dept. of Fisheries, Shediac, N.B. Gould, Ronald A., B.A., C.S.C. Officer, Civil Service Commission, Ottawa. Professional Accountants Humphrey, Douglas E., Admin. Officer, Dept. of (All Dept. of National Revenue) Veterans Affairs, Ottawa. Blanchard, P. Edward, Accountant, Sherbrooke, Que. Weldon, Thomas E., Admin. Officer, Dept. of Na Bonneau, Basile, L.S.C., Assessor, Quebec 10, Que. tional Revenue, Sherbrooke, Que. Bouchard, J. Maw·ice, C.G.A., Accountant, Sher- Agriculture brooke, Que. Leggett, H. W., B.Sc., B.S.A., Research Officer, Choquette, J., Group Head, Compteon, Que. Dept. of Ag1iculture, Regina. Gauvin, Andre, C.A., Accountant, Sherbrooke, Que. Milne, R.A., B.S.A., M.Sc., A/Chief, PFRA, Dept. of Leveillee, Pierre, Special Excise Tax Auditor, Mon- Agriculture, Vauxhall, Alta. treal, Que. Weaver, G. M., B.Sc., Ph.D., Resear_ch Officer, Dept. Wagar, Oscar E., B.A., Assessor, Belleville, Ont. of Agriculture, Harrow, Ont. Statisticians, Economists and Actuaries Gardner, E. H., M.S., B.S.A., Ph.D., R.D., Dept. of Sorboe, Magnus M., B.S.A., Economist, Dept. of Agriculture, Saanichton, B.C. Agriculture, Vancouver 12, B.C. Chemists Veterinarians Hole, John C., B.A., Chemist, Dept. of Finance, Leclerc, Raymond, B.A., D.M.V., Veterinarian, Dept. Ottawa. Education and Training of Agriculture, Riviere du Loup, Que. Piekarski, John Paul, D.V.M., Veterinarian, Dept. of Lapierre, F. D. R., M.A., Pmfessor, Dept. of Na Agriculture, N. Burnaby, B.C. tional Defence, Saint Jean, Que. Electric and Electronic Engineers Meteorologists Comach, Stanley I., Deputy Director, Dept. of De Burgess, James Arnold, B.Sc., Meteorologist, Dept. fence Production, Ottawa. of Transport, Ottawa. 20 ...... • Before you start any Plan-at least ask about C.I.F .-the only one in Canada under Calvin Bullock ( s\nce 1894) Management and with the distinguished Canadian� Directors. SAVE Carofully Serving Investors Slnce1919 "YOU CAN SAVE" from $100 to $1,350 Income Tax for the year ALL WAYS 1960 if your earned income was between $5,000 and $50,000-by starring a a£ -· -but you must complete an application \vithout delay to qualify. Ask for free folder showing what this Retirement Plan of Canada's leading Mutual Fund has done 'in its long history and how much your income tax may be reduced. May also be purchased on the "Growth Plan" or for Cash in any amount. Ask John Graham & Company Limited for full detai!s-85, Sparks Street, Ottawa 4. Telephone CE 2-5318-no obli gation. STATISTICAL ASSISTANT Canadian Underwriters' Association requires an Assistant to the present Head of their Statistical Department, who will retire within the next few years. The statistical work of the Association is extensive, requiring a total staff of 25 centered in Toronto. There is scope for improvement of the present methods (possibly involving the use of electronic data processing) to make better use of the statistics available. Applicants should be between 25 and 35 years of age; interested 111 and with experience of prooessing large quantities of statistics, and preferably with a suitable university qualification. Salary is dependent on qualifications. All enquiries will be considered in the strictest con fidence. Replies should be addressed to the personal attention of The General Manager, 460 St. John Street, Montreal, P.Q. PROFESSIONAL REPRESENTATION for Professional People The Professional Institute of the Public Service of Canada is the staff organization designed to represent professional public servants and advance their interests and welfare. The Institute is qualified to do this because it is an organization of professionals, specially formed to promote the welfare of professionals. Dramatic evidence of the growing recognition of this fact among professional public servants is provided by the growth of the membership of the Professional Institute in recent years. In the past two years, for example, Institute member ship has increased by almost 25 per cent. To qualify for membership, you must be a member of the Public Service employed in a professional capacity and either a university graduate or a member of a recognized professional association. The Professional Institute of the Public Service of Canada "WE SERVE THE STATE" CE 5-9643 200 Cooper Street THE RUNGE PRESS LIMITED � l OTTAWA CANADA f