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Keven Van Camp WINNIPEG, MANTTOBA

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Keven Van Camp WINNIPEG, MANTTOBA THE UNIVERSITY OF I'IANITOBA A HISTORY OF THE FRONTIER SCHOOL DIVISION EMPHASIS ON DECENTRALIZATION IùITH .CENTRALIZATION AND ]N THE ORGANIZATION AND ADMINISTRATION OF THE DIVISION by Keven Van Camp A TTTESIS SUBMITTED TO THE FACULTY OF GRADUATE STUDTES IN PARTIAL FULFiLL}IENT OF TTTE REQUIR-EMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY DEPARTMENT OF EDUCATIONAL ADM]NISTRATION AND FOUNDATIONS WINNIPEG, MANTTOBA DECEMBER, 19BO A HISTORY THE FRONTITR SCHOOL DIVISION .OF l\lITH EMPHASIS ON CENTRALiZATION AND DECENTRALIZATION IN THT ORGANIZATION AND ADMINlSTRATION OF I I1E DiVI SION ,BY KEVIN ROBERT VAN CAMP A thesis subnritted to the I'aculty of'Graduate Studies ol the Uuiversity of Manitoba in partial ftrlfillment of the requirements of the degree of DOCTOR OF PHILOSOPHY !j o 1980 Penlrission has been granted to the LIBRARY OF TtlE UNIVER- SITY OF M,ANITOBA to lend or sell copies of this thesis, to thc NATIONAL LIBRAIìY OF CANADA to nricrofilnr this ' thcsis and to lend or seil copics of'the fìlm, and UNIVERSITY MICROI'lLI4S to publisli an abstract of this thesis. The author reservcs othcr publicatiorl rights, altd neither tlte thesis nor extensive extracts from it rnay be printed or other- wise reproduced without the author's rvritten permission. DEDICAT]ON To my fírst teachers, Robert S. and Marjorie B. Van CamP L1 ACKNOI,ILÐGMENTS I r.¡ish to f irst acknov¡ledge Ëhe support and understanding of my principal advisor, J. A. Riffel. His acceptance and encour- agement of my personal and professional ídiosyncracÍes had a very great deal to do with my completion of this doctoral program. John Long, Bruce Sealey and Tom Peterson províded sound advice, cogent questions and considerable patience" Thanks is also due to people associated, past and present, wíËh Ehe Frontier School Division, who provided me with access to themselves and Ëheir records. This study woufd not have been at al1 possíble without theír cooperation- sandi Friesen receives my recognition for her patient trans- cription of this Ì,¡ork from the virtually illegible original. Gl_oria castillo has provided me with the quiet personal support and faith that I required to undertake and compleEe this program. I must also recognize a group of people and a process commonly known as confluent education through which I learned to believe in myself. La1 ABSTRACT The purpose of thÍs study rvas to provide a history of Ehe origins and establishrnent of the Frontier School Division No. 48 in the province of I'fanitoba. This history gave particular attention Èo centralization and decenLra1.ization in the organj-zatÍon and adminis- tratÍon of education in whaÈ is now known as Frontier School Division between 1899 and I979. Factors which influenced centralizati.on and decentralizaEion in the evolution of the Division r,¡ere identified. The study relied upon descripÈive, biographical, and qualita- tive data relevant to lhe origin and development of Fronlier School Division. The data were treated in a manner approprÍate for historical research and presented in a chronological narrative dÍvided Ínto eras corresPonding to the tenure of senÍor adminis trators r,'ho rvere insLru- mental in the development of Frontier School Division. There were four principal findings of the study. First, it was found that the geographic, demographic, racial, political and economic milieu rvithin which Frontier School Division developed greatly affected its development. Secondly, it was seen that the style, pre- ferences, and actions of the senior administrators \,rere more signifi- canE than the structures wÍthin which they operated in determining the evolution of Frontier School Division. ThÍrd1y, centralization and decentralization ç¡ere found to be influenced by a combination of fac- tors. The most important of these proved to be educational Ídeas, organizational conditions and the preferences of senior administrators. Finally, increased cenrralization resulted in corresponding losses of l-v local control. However, residents of Frontier School Dívision ín 1979 occupied a unique posi-tion ín terms of educatíonal governance, ín that they had increasing influence over policy and yet made a negligible financial contribution. Some important implications for further research and for the ongoing development of Frontier School Ðívision v/ere suggested. For example, a study whích analyzed the organizatJon and adrninistration of schooling forrfringe'peoples ín other parts of Canada is certain- ly warranted, if only to ans\ùer the question whether or not the case of Frontíer is unique. In that the locatíon of decísion-making povrer proved to have important consequences for the development of Frontier School Division, it was also suggested that the Divísion's develop- merit can usefully continue to be víev¡ed from the perspectives of centralization and decentralization. TABLE OF CONTENTS Page DEDlCATION ii ACKNOi,ILEDGMENTS iÍi ABSTRACT iv Chapter NATURE OF THE STUDY Purpose of the Study 1 Sígnificance of the Study 1 Key Concepts of the Study J a The Meaning of Centralization and De centralization J Factors Influencíng CentraLization and Decen- tral-izatíon 12 Limítatíons of the Study L4 Methodology of the Study 15 Kinds of Data 15 Sources of the Data 15 Treatment of the Data 16 Defínition of Terms 18 The Organization of the Thesis 20 II. THE MILIEU OF FRONTIER SCHOOL DIVIS]ON )'l The Geography a-7 The CommunÍties 30 The Economic Conditions 3B The Social Circumstances 42 The People 44 The Dívisíon 46 Summary 48 II] T]IE ORIGINS OF FRONT]ER SCHOOL DIVISION 52 7899-1942: The Commissioner of Northern Affairs qa and Visiting Officials JJ The Early Years and Ad Hoc Schoolíng 53 A Summary of the Early Years 57 7925-48: C. K. Rogers: The Beginnings of a System 5B The Murray Commission 5B C. K. Rogers and the Orphan Schools 65 V1 Page The Special Select Committee on Education 67 Scott Bateman and an Inspectorrs Report 10 A Summary and Early Precedents Continue . 74 1948-65: Scott Bateman and Bernard Grafton: The The Continuing Evolution to One System 76 The Establishment of the Specía1 Schools Branch 77 The Growth of the Special Schools Branch ÖL Lega1ízing Increased Central Authority B9 The MacFarlane Royal Commissíon 93 The Lagasse Report 98 The Pressure to Act in 1964 101 The Northern School DivísÍon Legislation 103 A Summary of the Final Steps r72 IV. T1{E ESTABLISHMENT OF FRONTIER SCHOOL DIVISION, 1965-7979 l-,23 7965-75: K. R . Jasper: The Buílding of the Frontier Sch ool Divisíon 1,23 Batemanr s Fina1 Involvement L24 K. R. Jasper : The First Official Trustee 127 Jasperts Ini tial Priorities and Actions l.2B The Organiza tíonal and Administrative Structure r32 A Massive Bu ilding Program 151 A Regularize d System of Fínance l-57 The Increase d Qualification of Division Staff 162 Currí cula 166 Community Involvement L69 A Summary of the Jasper Years 187 Jasper Retires and a Controversíal Successor Ís Appoínted 189 I975-76: Lionel Orlikow: An Important fnter- regnum 190 The Management Team 191 The lvlinnesota Study and Report ]92 The MacGilli vary Report l-95 Orlikowrs Lo cal Control Initiative 2_0r A Surnmary of Orliicor¡' s Contríb utions 20I L976-79: Jose ph L. Handley: Changes i.r, A*ptlu"i" 203 Handley's 0b jectives and Philosophy 204 The Minnesot a Follow-up Study: A Measure åt Progress 273 Advisory Committee Power Increases 22L The Nei¿ Emphasis Causes Some Probfems 2.23 A Surmnar.¡ of Handleyt ; Tenure . 225 \/ CENTRALIZATI¡}] AND DECENTRAL]ZATION ]I.] FRONTIER SCHOOL DIVIS IO}J 237 The Key Concepts of the Study L)t v]-l- Page CentralizatÍon and Decentralizatíon in Frontier School Divísion 239 Polítical Decentralization in the Early Years 239 The Movement Away from Politícal DecentralízaLíon 242 The Beginníngs of Administratíve Centralízation 246 The Strengthening of AdminÍstrative Central- ízation t /,o Toward Decentralízatíon 253 The Signíficance of Educational Ideas , Organíza- tional CondÍtions and Admínístrator Pre ferences 257 Summary 259 VI. THE SIJMMARY, CONCLUSIONS AND IMPLICAT]ONS OF TT{E STUDY 263 Summary 263 Educatíona1 Developments 263 Centralization and Decentralízation 265 Conclusíons 267 Implications 269 Implícatíon s for Further Research 269 Conceptual and Theoretícal Insíghts 270 Implications for the Frontíer School oirri"ion 27r Pos ts crip t 272 BIBLIOGRAPHY 273 APPENDIXES 280 ^ Líst of Intervier¡ees p Intervie\,r Schedule 284 C. Enrolments, Frontier School Division, December , l-979 286 D. Enabling LegislatÍon Respecting the t Northern School Dívisíon' 2BB E. Bateman Memorandum Outliníng Operation of FrontÍer School DivisÍon 294 F. Salary Schedule, Northern School Divísion 299 G. Minutes of Manítoba Department of Education Meeting, May, 1965, Respecting Building Needs in the Northern School Division ,)^1 tr^Iorking Paper on Goals for Frontier School Divisíon, J.L.Handley, May 31, I976 306 T. Terms of Reference for School Committees, 7978 3].7 viÍi LIST OF TABLES Table Pr oo I. Frontier Operatíng Schools, Cormnunitíes and Populations , I978-79. 34 II. Additional CommunitÍes for which Frontier had Respon- sibility and Populatíons, I97B-79 35 III. School Distrícts Formed Between l-924 and 1948 which Became Part of the Division 64 IV. Consolidatíon of Founding School Dístricts and Schools of Frontier School Dívisíon, 1965-75 135 V. Addítional Schools JoinÍng Frontier School Division l.965-7 s r37 ' VI. Frontier Sc hool Division No. 48, Budget Totals, 196s-7 5 160 VII. Frontier Schoof Divísíon No. 4B Teacher Qualifica- tions, 1965-70 ].64 1X L]ST OF FIGURES Figure Page 1. Ministerial Order Establishíng Frontíer School Division 111 2. Or ganízalÍonal Chart Frontier School Dívísíon lÍ48 , ca . 19 68 148 ) Otganízational Chart: Frontier School Dívicion 1148, ca. L972 150 L]ST OF I"IAPS MaP Page A. Area Served by Frontier School DivisÍon 2B B. Communítíes Served by Frontier School Division 31 Chapter 1 THE NATURE OT' THE STUDY Purpose of the Study The purpose of this study was to provide a history of the Frontíer School Divisíon in the province of Manitoba.
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