THE ONTARIO COLLEGE OF TEACHERS: SELF-REGULATION OR CONTROL OF TEACHING? Jennifer Lamarche-Schmalz Faculty of Education Submitted in partial fulfilment of the requirements for the degree of Master of Education Faculty of Graduate Studies The University of Western Ontario London, Ontario August 1997 Q Jennifer Lamarche-Schmalz 1997 National Library Bibliothèque nationale ($1 of Canada du Canada Acquisitions and Acquisitions et Bibliographic Services services bibliographiques 395 Wellington Street 395, nie Wellington Ottawa ON KIA ON4 Ottawa ON K 1A ON4 Canada Canada Your hie Vorro reterence Our ri& Notre retdrence The author has granted a non- L'auteur a accordé une licence non exclusive licence allowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sel1 reproduire, prêter, distribuer ou copies of ths thesis in rnicrofonn, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/filrn, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts fiom it Ni la thèse ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent être imprimés reproduced without the author's ou autrement reproduits sans son permission. autorisation. Abstract This study analyzes the creation of an Ontario College of Teachers to determine whether a College will. in the opinion of teachers. further the self- regulation of the teachers of Ontario or serve as a mechanism to increase state control of the teaching profession. This study focuses first on the historical context of the College of Teachers initiative. It then reviews the literature pertinent to the concepts of self- regdation, professionalism, power and control. Chapter three analyzes the available government and teachers' federations and associations documentation relating to the creation of an Ontario College of Teachers. Interviews conducted with the presidents of the Ontario Teachers' Federation (OTF). Association des enseignantes et des enseignants franco-ontariens (AEFO), Ontario English Catholic Teachers' Association (OECTA), Ontario Public School Teachers' Federation (OPSTF) and Ontario Secondary School Teachers' Federation (OSSTF) are discussed with reference to the frarnework laid out in the literature review. The OTF and its affiliates were found to be very suspicious of the government's motives, particulariy when discussing the composition of the Governing Council of the College. The researcher discovered nothing that would suggest that teachers' suspicions were ill-founded. III Acknowledgements I would like to thank Dr. Rebecca Priegert Coulter for her guidance, support. and mostly her understanding throughout this process. Her vision and integrity made this study an enjoyable learning expertence. I would also like to thank Dr. Marshall Mangan for his invaluable insight and his many contributions to the finished product. I am most grateful to my husband, John Schrnalz. for always being supportive and understanding of my many endeavours. He has never hesitated to encourage me to pursue al1 of my goals and dreams. TABLE OF CONTENTS Page Certificate of examination II Abstract ii i Dedication iv Acknowledgements v Table of contents vi List of Appendices Chapter 1 - Introduction and Historical Context Chapter 2 - Professionaiism. Power and Control Chapter 3 - lmplementing the College: A Chronology Chapter 4 - Federation and Association Perspectives Chapter 5 - Conclusions and Final Thoughts Appendices References Vita LIST OF APPENDICES Appendix Page Appendix A Interview Questions 68 Appendtx B Ethical Review Clearance Certificate 69 Chapter 1 - Introduction and Historical Context In February 1995. the Ontario Royal Commission on Learning released its final report. lncluded in its many recommendations was one clearly specifying the need to create a "professional self-regulatory body for teaching" (vol.l Il. 1994. p.61) or. as the Commission called it, the Ontario College of Teachers. The purpose of this study is to analyze whether the creation of an Ontario College of Teachers will, in the opinion of teachers. further the self-regulation of the teaching profession. or whether it will serve as a mechanism to further state control of the teaching profession. The concept of a College of Teachers is not new in Canada. The Royal Commission report entitled Livina and Learninq (Ontario, 1968), better known as the Hall-Dennis report. contained a very specific recomrnendation dealing with the issue of teacher self-governance. Recommendation 137 of the report called on the Ontario government to "Enact a Teaching Profession Act which will make teaching a self governing profession with powers to license and to discipline its members, these powers to be exercised through an organization to be known as the College of Teachers of Ontario" (Ontario. 1968. p. 192). This proposal did not become a reality in the late sixties. but the Hall-Dennis recommendation opened the door for both the government and the Ontario Teachers' Federation (OTF) and its five affiliates: the Federation of Women Teachers' Associations of Ontario (FWTAO). the Ontario English Cat holic Teachers' Association (OECTA). the Ontario Public School Teachers' Federation (OPSTF), the Ontario Secondary School Teachers' Federation (OSSTF) and the Association des enseignantes et des enseignants franco- ontariens (AEFO), to begin considering and discussing the advantages and disadvantages of teacher self-regulation. An OTF Commission established to consider the notion of a College "responded favourably to the concept of increasing the professional status of teachers" (Francis. 1993. p.45). This is reflected in the OTF Commission's report. Pattern for Professionalism, which O bserved: If we are to be professionals in the full sense, we must be responsible for the standards of our profession. This means finding avenues of influence and channels of communication, which. we must admit, however reluctantly. do not presently exist in as effective a fon as we should like to see them. (OTF. 1968, P. 10) However. by the mid-seventies. the issue of teacher self-governance had al1 but been forgotten. The debate did not resurface until 1980 when the then Minister of Education. Dr. Bette Stephenson, and her Deputy Minister. Dr. Harry Fisher, revisited the idea of creating an Ontario College of Teachers. Stephenson formally introduced her vision of a College of Teachers in a document entitled Issues and Directions (Ontario, Ministry of Education [hereafter MOE], 1980). In this report, Stephenson clearly stated her intentions in the following sections: 4.3 The Government believes that the teaching profession has reached a stage of maturity comparable to that of other established professions and that the public interest can therefore be safeguarded through means other than those now in effect. 4.3.1 It is proposed that the Ministry of Education enter into discussions with the Ontario Teachers' Federation to plan the creation of a professional association or "college of teachers", which will exercise. on behalf of the public interest, rights of admission, certification. discipline, professional development, and maintenance of the professional records of teachers. 4.3.2 The Ministry of Education proposes to conduct a formal review of the Teaching Profession Act, 7944, with particular reference to the changes that should be made subsequent to the creation of a "college of teachers". (Ontario. MOE, 1980,p.40) Stephenson went beyond simply making the announcement and waiting for the outcorne. In fact " Issues and Directions also proposed . to pursue it [a College of Teachers] more aggressively" (Francis. 1993. p.49). By 1983. Stephenson had a specific implementation strategy which was set out in Education Ontario (Ontario, MO€. June 1983). This article prescribed the following structure for a College: i) The College of Teachers would be a separate entity from the existing Ontario Teachers' Federation and the professional organizations. ii) Membership in the College would be mandatory for ali who hold positions with a school board or in the Ministry of Education by virtue of a basic licence to teach in Ontario. but voluntary for teachers in the private sector (mandatory membership would not extend to teachers in pst secondary or adult continuing education). iii) Mernbership in OTF would not be a pre-requisite for membership in the College. iv) There would be a single College to represent al1 teachers - public and separate, as well as French and English. v) The Minister of Education and the Ministry of Colleges and Universities would be an ex-officio member of the governing body of the College of Teachers. Governance Structure i) The Council would be a separate legal entity from the existing Teachers' Federation and other professional organizations. ii) The Minister of Education and the Ministry of Colleges and Universities would be an ex-officio member of the Council. iii) The College would be self-financing and would have the authority to levy fees from rnembership to cover its costs of operation. iv) There would be 26 mernbers of the Governing Council as follows: 6 appointments by the lieutenant governor-in-council. 2 representatives elected by professional staff of Faculties of Education. and 18 teachers elected directly by teachers on a geographic basis